Policy and guidelines for planning and coordinating recovery of endangered and threatened species: a guide for planning and coordinating the recovery of endangered and threatened species

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POLICY AND GUIDELINES FOR PLANNING AND COORDINATING RECOVERY OF
ENDANGERED AND THREATENED SPECIES
A guide for planning and coordinating the recovery of endangered and
threatened species, involving the U.S. Fish and Wildlife Service, State
and Federal agencies, and other parties, as required by the Endangered
Species Act of 1973, as amended.
U.S. Department of the Interior
Fish and Wildlife Service
May 1990
05/25/90
POLICY AND GUIDELINES FOR PLANNING AND COORDINATING
RECOVERY OF ENDANGERED AND THREATENED SPECIES:
EXECUTIVE SUP9IARY
These Policy and Guidelines for Planning and Coordinating Recovery of
Endangered and Threatened Species, dated May 1990, revise and supersede
previous guidance on recovery planning. Changes are in response to: (1)
the 1988 Amendments to the Endangered Species Act, (2) the General
Accounting Office’s December 1988 report, Endangered Species Management:
Improvements Could Enhance Recovery Program, and (3) the desire of the
Service to make the guidance more useful and consistent with current policy.
Section I discusses major changes in recovery activities required by the
Endangered Species Act Amendments of 1988. Section II reflects the
Amendments in its discussion of the preparation and processing of Recovery
Plans. Section III includes a discussion of new reporting systems for
tracking expenditures and species status trends, which will set the stage
for the Service to. maintain centralized databases. Service guidance on
Recovery Plan preparation puts new emphasis on developing: (1) measurable
criteria for recovery goals and (2) recovery tasks for which implementation
can be readily tracked. Recovery Plans are expected to more specifically
state what the Service is trying to accomplish through recovery, more
precisely describe the on-the-ground work involved in implementing the
Recovery Plan, and provide estimates of the time and costs needed to achieve
recovery.
05/25/90
TABLE OF CONTENTS
I. INTRODUCTION
A. Background and Context
B. The Endangered Species Act Amendments of 1988
1. Public Review of Recovery Plans
2. Recovery Plan Status Report
3. Monitoring of Recovered Species
4. Section 6 Amendments
5. Annual Reporting of Recovery Expenditures
6. Recovery Plan Requirements
C. Recovery Priority System and Policies .
II. RECOVERY PLAN PREPARATION AND PROCESSING
A. Preliminary Steps and Regional Responsibilities
B. Recovery Plan Processing
C. Summary of Service Responsibilities
III. REPORTING AND TRACKING OF RECOVERY ACCOMPLISHMENTS
A. Species Status Report
B. Species Expenditures Report
C. Recovered Species Status Report
IV. REFERENCES CITED
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V. APPENDICES
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APPENDIX I - RECOVERY PLAN FORMAT
- Title/Approval Page 1-1
- Disclaimer Page 1-2
- Literature Citation 1-3
- Acknowledgements Page 1-4
- Executive Summary 1-5
- Recovery Plan Development (Outline) 1-8
APPENDIX II - ORGANIZING THE RECOVERY EFFORT: ROLES AND OPTIONS
- Organizing the Recovery Effort: Personnel Considerations Il-I
- Recovery Team Appointment Letter 11-4
- Recovery Team Responsibilities 11-6
- Recovery Outlines - Memo and Format 11-8
- Lead Regions. for Endangered Species Activities 11-10
- Species Status Report(s) 11-19
APPENDIX III - PUBLIC INVOLVEMENT
- Sample Newspaper Public Notice 111-1
- Sample Press Release 111-2
- Model Federal Register Notice of Plan Availability . . . 111-3
- Sample Technical/Agency Review Draft Transmittal Letter 111-6
- Public Meeting Guidance for Recovery Plan Review . . . 111-7
- Recovery Plan Distribution List 111-9
APPENDIX IV - SERVICE POLICIES RELATING TO RECOVERY
- Captive propagation or cultivation IV-1
- Habitat protection/land acquisition IV-1
- Hybrids IV-2
- Relocation of listed species IV-2
- Reintroduction vs. Introduction of listed species IV-3
- Termination of recovery efforts IV-3
- Experimental populations IV-3
- Listing and Recovery Priority Guidelines . . . . IV-4
- National Environmental Policy Act requirements . IV-14
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I. INTRODUCTION
A. Backaround and Context
Section 4(f) of the Endangered Species Act (Act) of 1973 (16 U.S.C.
1531 et. seq.), as amended, directs the Secretary of the Interior and the
Secretary of Commerce to develop and implement recovery plans for species
of animals and plants listed as endangered or threatened unless such plans
will not promote the conservation of the species. The Fish and Wildlife
Service (Service) and the National Marine Fisheries Service have been
delegated the responsibility of administering the Act. The National Marine
Fisheries Service is generally responsible for most marine species (except
birds), and the Service is generally responsible for birds and terrestrial
and freshwater species. Exceptions include the West Indian• manatee, sea
turtles (on land), and sea otters, which are under the Service’s
jurisdiction.
The Director, Fish and Wildlife Service has delegated the responsibility
for preparing and implementing recovery plans to the Regional Directors.
Decisions involving species that cross Regional boundaries will be
coordinated among appropriate Regional Directors. Although developing
recovery plans is usually appropriate, it is not always needed. The
Regional Director has a choice to make.
These guidelines describe the procedures established by the Service to
implement and coordinate recovery programs for federally listed species
occurring in the United States. The objectives of these guidelines are to:
(1) provide guidance for implementing the Endangered Species Act Amendments
of 1988 and (2) improve the planning process so that substantial effort
can be spent on recovery actions. These guidelines are intended to be used
by Service managers and by prospective authors and reviewers of recovery
plans, whether or not they are employed by the Service or have had previous
exposure to recovery plans.
Recovery is the process by which the decline of an endangered or
threatened species is arrested or reversed, and threats to its survival are
neutralized, so that its long-term survival in nature can be ensured. The
goal of this process is the maintenance of secure, self-sustaining wild
populations of species with the minimum necessary investment of resources.
A recovery plan delineates, justifies, and schedules the research and
management actions necessary to support recovery of a species, including
those that, if successfully undertaken, are likely to permit
reclassification or delisting of the species.
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Coordination among Federal, State, and local agencies, academic
researchers, conservation organizations, private individuals, and major
land users is perhaps the most essential ingredient for the development
and implementation of an effective recovery program. In its role as
coordinator of the recovery process, the Service must emphasize cooperation
and teamwork among all involved parties.
Although recovery plans do not, of themselves, commit manpower or funds,
they are used in setting regional and national funding priorities. They
also justify Service and other Federal agency recovery appropriations to
Congress. Therefore, recovery plans must be as specific as possible in
identifying: (I) recovery goals, (2) recovery tasks, (3) the duration and
cost of recovery actions, and (4) responsible parties and interests.
B. The EndanQered SDecies Act Amendments of 1988
The 1988 Amendments, and their relation to recovery planning and
implementation, are discussed below.
1. Public Review of Recovery Plans
Section 4(f) of the amended Act requires public review of all new or
revised recovery plans prior to approval. The intent is to inform the
public, promote public involvement in the recovery planning process, and
increase the information available to all involved Federal agencies. At a
minimum, the Service will publish a notice in the Federal Register notifying
the public of the availability of a technical/agency draft or agency draft
recovery plan. The notice will open a formal public comment period.
Notices or press releases in newspapers within the range of the species
will also be considered as appropriate. The Regional Director of the lead
Region is responsible for deciding if additional methods, such as public
meetings, are warranted. (See guidance in Section II and Appendix III of
these guidelines.) Any relevant comments received during the public comment
period that require coordination with other agencies in order to address
the issue in the final plan should be forwarded to that agency for
consideration prior to plan approval. Otherwise, any other comments
received may be summarized in the final approved plan.
2. Recovery Plan Status Report
Section 4(f) of the Act was also amended to require the Service to
report every 2 years to Congress on the preparation and implementation of
recovery plans and on the status of each listed species with a recovery
plan. The first report is due in October iggo. The intent is to: (I)
measure progress in developing and implementing recovery plans, and (2)
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provide information on the status of each listed species with a recovery
plan. (See guidance in Section II of these guidelines.)
3. Monitoring of Recovered Species
Section 4(g) of the Endangered Species Act was amended to require a
system for monitoring (for a period of not less than 5 years) all species
that have been recovered and delisted, and to provide for emergency re-listing
of any species that may again become in danger. (See guidance in
Section II of these guidelines.)
4. Section 6 Amendments
Congress recognizes that States bear much of the responsibility for
managing Federally listed species and that the expertise of State
conservation agencies is essential to the endangered species program.
Section 6 of the Act was amended to clarify that States may use Section 6
grants to monitor the status of recovered (delisted) species and Notice of
Review Category 1 and 2 candidate species. However, priorities for Section
6 allocations should be: (1) implementation of recovery actions, (2)
candidate monitoring, and (3) monitorIng of recovered species.
Although monitoring candidate species is not directly related to
recovery, it does provide an opportunity for Federal and State agencies to
conduct prelisting habitat protection and management actions, and ensures
that species awaiting listing are not lost through inattention to their
status.
5. Annual Reporting of Recovery Expenditures
A new section (18) of the Act requires an annual reporting, on a
species-by-species basis, of all “reasonably identifiable” Federal or State
expenditures made primarily for the conservation of endangered or threatened
species pursuant to the Act. The intent of this amendment is to provide
additional cost information to Congress and to examine the distribution of
funds. (Follow guidance in Section II of these guidelines.)
6. Recovery Plan Requirements
In the 1988 amendments, Congress made it clear that a recovery plan is
to be an action-oriented document. There are four issues that must be
addressed in every recovery plan.
o To the maximum extent feasible, a recovery plan must identify
site-specific management actions as may be necessary to achieve
the plan’s goal for the conservation and survival of the
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species. Action-oriented tasks designed to achieve specific
recovery goals are appropriate.
o A recovery plan must estimate the time frame required for
accomplishing recovery, assuming that sufficient funds are provided
and in accordance with the schedule In the plan. Estimates of
time to recovery must be based on known biological factors and a
determination of the likelihood that other management programs,
including regulatory and law enforcement programs, might facilitate
or detract from task accomplishment. If they are uncertain, the
nature of the uncertainty must be discussed In the plan. If
unknown, discuss recovery tasks that will make it practical to
outline tasks and time frames in future plan revisions.
o A recovery plan must estimate the cost of complete recovery of the
species. If the estimate is uncertain, the nature of the
uncertainty must be discussed in the plan. In the past, some
recovery plans have given only the Service’s recovery costs.
However, Congress now requires that all recovery plans estimate
the total cost for all Federal and State agencies and private
organizations involved.
o A recovery plan must set forth precise, measurable criteria
and/or identify research needs that will allow the Service
and others to objectively determine when recovery has been
achieved when it is, in fact, achievable.
With this information in the recovery plans, all interested parties
will have a better idea of the funds n3cessary for recovery. These
documents then can be used to support Service budget initiatives.
C. Recovery Priority System and Policies
The Service recognizes the necessity to assign priorities to listing,
delisting, and recovery actions in order to most appropriately use the
limited resources available to implement the Act. The December 1988
General Accounting Office report to Congress criticized the Service for
not following its own priority system and for devoting an inordinate amount
of resources on either high-profile, low priority species or on low priority
tasks for high priority species.
Two priority systems guide species recovery. The first is the Species
Recovery Priority System (See Appendix IV.) This numerical system assigns
species a rank of I to 18 according to the degree of threat, recovery
potential, taxonornic distinctness, and presence of an actual or imminent
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conflict between the species’ conservation and development or other economic
activities (the latter factor doubles the number of levels: lC, 1, 2C, 2,
3C, 3 ...). Each listed species is assigned a priority by the lead Region
at the time of listing. In general, the lower the numerical value, the
greater the likelihood of extinction and the greater the justification for
the Service to expend recovery resources on that species.
The second is the Recovery Task Priority System. In developing a
recovery plan, recovery tasks are assigned numerical priorities of 1, 2,
or 3 according to the relative contribution they may make to species
recovery. (See definitions under Implementation Schedule: Appendix I).
In concept, resources should be allocated first to accomplishing
priority-l recovery tasks for species with a recovery priority number of 1
and last to priority-3 tasks for a species with recovery priority of 18
(lowest priority delineated in the current system). Actual funding
allocations, however, may not follow this formula strictly in all cases.
Some otherwise low priority species that need only one or two low priority
tasks to complete recovery might receive resources to expedite their
downlisting or delisting.
In practice, Congress sometimes mandates that funds be spent on species
or tasks that would otherwise not yet be funded by a strict application of
the two priority systems. Also, a Regional Director must often be flexible
enough to take advantage of special opportunities provided by shifting
social, political, or economic circumstances. Therefore, the two formal
priority systems, used in tandem, serve as a guide rather than a mold to
which all actions must conform. When appropriate, Service managers may
practice the art of management in deft and imaginative ways to get the
greatest conservation benefits for resources expended. Other agencies,
groups, and individuals can and should become involved in the coordinated
recovery effort.
Service policies with direct application to recovery include those on
vertebrate populations, captive propagation or cultivation, land
acquisition, hybrids, reintroduction, experimental populations, and
termination of recovery. These policies are described in Appendix IV.
Plan preparers should be familiar with these policies to ensure consistency
of the recovery plan tasks they write.
II. RECOVERY PLAN PREPARATION AND PROCESSING
The method to be used for plan preparation Is based on several factors,
including the range (limited vs. extensive), or ecosystem (simple vs.
complex), of the species, the complexity of the recovery actions
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contemplated, the number of organizations responsible for the implementation
of the recovery tasks, the cooperation of private landowners, the
availability and expertise of personnel, and the availability of funds.
Lead Regions for endangered species activities have been identified to
guide coordination of listing and recovery assignments. A discussion of
the concept and Regional responsibilities is found in Appendix II. Some
recovery plans are prepared by Service biologists. The Service also may
use outside expertise in the form of recovery teams, other Federal agencies,
State personnel, private conservation organizations, or private contractors
in the development and implementation of recovery plans. A detailed
discussion of the options available for recovery plan preparation and the
roles of prospective participants is found in Appendix II.
The Service need not prepare National Environmental Policy Act (NEPA)
documents on the lead Regional Director’s decision to prepare a recovery
plan. Recovery plan development is categorically excluded from complying
with NEPA based on the consultative and technical assistance nature of
recovery planning. However, implementation of a specific task in a plan
may require NEPA compliance if that task constitutes a major federal action.
(See Memo from the Director to the Regional Directors, •NEPA Categorical
Exclusion for Recovery Plans,” dated 11/5/86, in Appendix IV.)
A. Preliminary SteDs and Regional ResDonsibilities
The recovery planning process begins when or just before a species is
listed. Some management actions may have occurred prior to listing a
species in an effort to begin reversing its decline or minimizing the
threats to its existence. If the species was previously a candidate, some
management actions may have already taken place. The Regional Director
responsible for preparation of the original listing package is normally
designated the lead for preparing and signing the recovery plan, unless
the affected Regional Directors agree otherwise. The Director reserves
the right to approve recovery plans of national significance.
A lead Regional Director is required to submit a recovery outline to
the Director within 60 days of the final listing rule publication briefly
explaining the actions the Region intends to take. This is a one-page
document in which the Regional Director indicates the species recovery
priority number, whether or not a recovery plan will be prepared, the
estimated date of its completion, whether or not a recovery team will be
appointed, and what immediate or major recovery actions are anticipated.
(See Memo from the Director and Recovery Outline format in Appendix II.)
For a species found in more than one Region, the designated lead Region
will determine the method of plan preparation and coordinate recovery plan
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development and implementation in cooperation with other affected Regions.
Regions are encouraged to develop multi-species recovery plans for listed
species that share the same ecosystem or for taxonomically related species
facing similar threats. In some instances, it may be advantageous to
develop separate plans for each major population of a widespread species
(e.g., the bald eagle). —
B. Recovery Plan Processino
Following regional review, the Regional Director may opt to produce a
technical draft for review by the professional community (e.g. academic,
law enforcement, other Federal contacts, etc.). This draft need not include
an Implementation Schedule. Comments received are incorporated into a
subsequent agency draft, which is made available for review by all
interested agencies and parties (including the general public).
Alternatively, the Regional Director may choose to produce a combined
technical/agency draft, to be reviewed simultaneously by all interested
parties. The latter approach is recommended because it saves time, effort,
and money; however, the decision on whether to have separate drafts or one
combined draft belongs to the lead Regional Director.
Once the agency (or technical/agency) draft or a significant revision
to a previously approved plan is prepared, the following actions will be
taken to comply with the 1988 Amendments:
1) The lead Region will distribute this draft to the Assistant Director
- Fish and Wildlife Enhancement (ADFWE), the Assistant Director -
Refuges and Wildlife (ARW), the Assistant Director - Fisheries (AF),
the Regional Director for Research and Development, other affected
Regions, all affected Service field offices, cooperating agencies,
species experts, and other interested and/or affected public or
private parties. Comments will be transmitted to the lead Region
within 60 days.
2) The lead Region will prepare a Notice of Availability for
publication in the Federal Register requesting public comments
within a specified time. The lead Region also may develop a public
notice and/or press release to be published in, or provided to,
local newspapers in each major geographical area where the species
is known or believed to occur (See Appendix III for examples of
such documents.) The lead Region will absorb the cost of press
releases and other forms of public notification.
3) The Federal Register notice, press releases, and/or public notices
should be published at the same time. However, the Regional
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Director may, as a courtesy, distribute the technical/agency draft
or agency draft to cooperating agencies and other affected parties
shortly before the general public is invited to review and comment
on the draft. This advance distribution is appropriate if the
Regional Director wishes to allow cooperating agencies and other
affected parties some lead time to deal more effectively with
inquiries from the general public.
4) The Regional Director of the lead Region will decide whether or
not to hold public meetings on the draft recovery plan. If a public
meeting is to be held in a Region other than the lead Region, that
Regional Director is responsible for organizing and holding the
meeting but should do so in close cooperation with the lead Region.
(See Appendix III for further guidance on public meetings.)
Public comments must be sent to the lead Region for consideration
prior to approval of the plan. The lead Region decides whether to address
the comments and the Service’s response in, or separately from, the
recovery plan. The Region has substantial discretion in this area. If
only a few comments are received, It may be simple to append them to the
approved recovery plan. However, numerous comments could be very unwieldy,
and the Region may choose to merely summarize the comments. The Service’s
administrative record must show that all comments received during the public
comment period have been considered and, if not addressed individually,
addressed in summary form. Since the 1988 Amendments also require other
affected Federal agencies to consider public comments, the lead Region
must provide copies of all comments to appropriate agencies for
consideration, prior to their address in the approved recovery plan.
Comments can be accepted at any time during recovery plan preparation.
Those received outside the designated public comment period need not be
addressed in a formal fashion, but the Service and cooperating agencies
are free to use any significant information so provided.
A recovery plan is considered Approved” only after being signed by the
lead Regional Director or Director. After approval, the plan is reproduced
by the Regional Office and distributed. The distribution list is found in
Appendix III. A copy of the signed approval page must be sent to the
Director (ATTN: FWE/DES) within 15 days after the approval.
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An approved plan should be reviewed periodically to determine if updates
or revisions are needed. Changes in an approved plan will be processed in
the following manner:
o Uodate - This involves changes in the Implementation Schedule or other
minor revisions (e.g., Identification of recovery tasks that have been
initiated since the last printing and are either ongoing or have been
completed). Tasks that have been completed should be indicated as such in
the comments column of the Implementation Schedule, along with actual costs
(for example, “complete FY 1989” or “ongoing 520K FY 1989 with Section 6
funds”). The Division of Endangered Species (DES) will be informed of an
Update by the Species Recovery Status Report that will be sent to ADFWE
on an annual basis (see Section III and Appendix I). Copies of the updated
pages should be forwarded to cooperators. No public review and comment is
required for updates, but the lead Regional Director may choose to solicit
such comment.
o Revision - This involves substantially rewriting some portion(s) of the
plan. A revision is necessary when significant changes are needed in Parts
I or II, and/or when major conceptual changes are required. Existing
approved plans need not be revised merely for reformatting to these
guidelines; however, when a revision is undertaken, the opportunity to
conform the plan should be taken.
In some cases revisions or updates can be handled by replacing whole
pages in the original plan with new versions. Such pages should be dated
to indicate the time of revision/update.
Significant revisions of approved plans require a review with public
involvement. The Region that prepared the original recovery plan is
responsible for preparing the revised recovery plan, unless the affected
Regions agree otherwise or the Director provides other instructions.
All updates and revisions should be carefully analyzed to ensure that
the task priorities are valid. As in an original plan, the narrative
description in Part II for any priority 1 task in a revised plan should
include explanation of why the action is necessary to prevent extinction.
A revised recovery plan must be identified as such on the title sheet and
cover along with the date of the original approved recovery plan and the
revision.
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C. Summary of Service ResDonsibilities
The Regional Director has the responsibility to:
1. Provide a Recovery Outline (see format In Appendix II) for any listed
species for which the Region has lead responsibility to the Director
within 60 days subsequent to publication of the final rule listing a
species.
2. Prepare and approve all recovery plans for which the Region prepared
the original listing package unless the affected Regions agree
otherwise. These plans will generally be for species that occur solely
or largely within the affected Region. The Director retains the
discretion to approve any plan or to delegate approval to the
responsible Region.
3. Take emergency actions, with appropriate permits, necessary for the
protection of any listed species regardless of plan status or task
priority.
4. Establish recovery teams, if appropriate, to develop the recovery plan
or oversee its implementation.
5. Modify or terminate recovery teams and their activities.
6. Appoint, remove, and replace recovery team members as appropriate
(Under special circumstances, the Regional Director may wish to have the
Director announce these actions.)
7. Inform the appropriate Public Affairs Office of actions conducted under
the above items 4, 5, and 6.
8. Assist those preparing plans by providing technical, advisory, fiscal,
and other assistance as needed.
9. Complete the Implementation Schedule, Part III. (This may be done
instead by the plan preparer, at the discretion of the Regional
Director.)
10. Review all drafts of the recovery plan and accept, modify, or return
them to the preparer for further modification. Distribute drafts for
review and comment in accordance with Appendix III.
11. Arrange for the publication of a Federal Reaister notice informing
the public of an opportunity to review the recovery plan and provide
comments.
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12. Distribute a press release and/or publish (in a newspaper of local
distribution) a public notice of availability of the agency or
technical/agency draft of new or revised recovery plans and the
opportunity to comment, hold public meetings on recovery plans as the
Regional Director finds necessary, and address any significant public
comments associated with the recovery plan. The lead Region is
responsible for bearing the costs of publishing Notice(s) outside Its
region.
13. Print and disseminate approved plans to the appropriate parties listed
in Appendix III. Printing of plans will be accomplished within 90
days after approval; distribution within 120 days, subject to
availability of funds (See Appendix III).
14. Immediately upon printing, provide three copies of each new or revised
Recovery Plan to the Director through the Assistant Director - Fish
and Wildlife Enhancement.
15. Periodically review each recovery plan, and update and revise as
required.
16. Notify appropriate Federal agencies, in writing, of the statutory
requirement that they consider all information presented during the
public comment period and provide copies of such comments to those
agencies prior to approval and implementation of new or revised plans.
17. Direct and coordinate recovery plan implementation.
18. Develop budget proposals to implement recovery plans and prepare Annual
Work Activity Guidance for current year funding.
19. Review progress of plan implementation and report on accomplishments
and progress of species’ recovery (including recovered species) as
requested by the Director.
20. Terminate recovery efforts once plan objectives have been
accomplished. The Regional Director may continue management actions
even after a recovery plan’s objectives have been met.
21. Recommend delisting or reclassification of listed species as
appropriate.
22. Inform all cooperators of modifications in the plan and other actions,
including emergencies, problems, needs, progress, etc.
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The Region 9 Division of Endangered Species has the responsibility to:
1. Provide guidelines and training on National policy, new legal
requirements, and the preparation of plans through written materials and
workshops.
2. Review, evaluate, and provide conunents on the technical/agency or agency
drafts of new or revised plans regarding adherence to the recovery
guidelines and other Fish and Wildlife Service policies.
3. Compile Regional reports on recovery implementation progress, species
status (including status of recovered species), and status of draft,
revised, or approved recovery plans for Director’s submission to
Congress.
III. REPORTING AND TRACKING OF RECOVERY ACCOMPLISIHENTS
A recovery plan benefits a species only if it is imolemented. As a
general rule, one person in the lead Region should be assigned the oversight
of each recovery plan. This individual should be responsible for
coordination with all parties participating in the species recovery efforts
and for preparing species-specific input for any required reports.
Three report requirements exist to ensure compliance with the Endangered
Species Act. These include: (1) Species Status Report (biennIal), (2)
Recovery Expenditures Report (annual), and (3) Recovered Species Status
Report (annual). ADFWE will Drovide sDecific requirements for each reDort
to the Regions. alona with any chanoes. each fl~..j.j~Dort is required
.
These reports serve as the basis for a system to track recovery progress and
expenditures. The following guidance should be followed within each Region.
A. SDecies Status ReDort
The Service is required, by Congress, to report every two years to
the Committee on Environment and Public Works of the Senate and the
Committee on Merchant Marine and Fisheries of the House of Representatives
on the status of efforts to develop and implement recovery plans for all
species listed pursuant to Section 4 of the Act and on the status of all
species for which such plans have been developed. The status of each listed
species will be tracked using a centralized database (developed by the
Region 9 Division of Endangered Species (DES)). Beginning in Fiscal Year
1990, each Region is responsible for sending to the ADFWE, on an biennial
basis, a Species Status Report (Parts I, II, and III) on each listed species
for which it has lead responsibility (See format, Appendix II). This Status
Report will include a tabular report (Parts I and II) and individual species
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summary status reports (Part III). The species summary status will be no
longer than one page. It will include a one-line statement regarding the
current status of the species based on information readily available to
the staff. A species’ status will be categorized as: Improving
(Increasing), Stable, Declining, Unknown, or Extinct. The summary should
compare the species’ current status with its condition at the previous
status review. The report should also describe the recovery actions that
have been implemented and/or completed during the previous year (including
consultations, incidental take authorizations, law enforcement activities,
etc). The purpose of this report is to track the status of each species
and the implementation of recovery plans, as required by Congress.
B. SDecies ExDenditures ReDort
On or before January 15, 1990 and each January 15 thereafter, the
Service, in accordance with Section 18 of the Act, will submit to Congress
an annual report covering the preceding fiscal year which provides an
accounting on a species by species basis of all reasonably identifiable
Federal and State expenditures made primarily for the conservation of
endangered and threatened species pursuant to the Act. DES will develop
a list of reasonably identifiable categories (by species or cluster of
species), such as listing, recovery, consultation, research and development,
acquisition, law enforcement, and Section 6 grants, for the Regions to use
in reporting on species expenditures. In addition, DES will develop a
simple reporting system for use in identifying expenditures of other Federal
agencies and States. The Regions are required to provide ADFWE with an
annual expenditure report in advance of the required date for submission
to Congress. Coordination through the International Association of Fish
and Wildlife Agencies for State expenditures will be accomplished by DES.
The Director will then provide Congress with a nationwide Recovery
Expenditures Report by January 15th of each year.
C. Recovered SDecies Status ReDort
For at least five years after delisting, the Service is required to
implement a system in cooperation with the States to monitor the status of
all species which have recovered to the point at which the measures provided
pursuant to the Act are no longer necessary. The Lead Regions must provide
ADFWE with an annual Recovered Species Status Report for each recovered and
delisted species, describing the monitoring methods used and the results of
the previous fiscal year’s monitoring efforts by October 31st of each year.
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14
IV. REFERENCES:
General Accounting Office. 1979. Endangered Species - A Controversial
Issue Needing Resolution. Washington, D.C.
General Accounting Office. 1988. Endangered Species - Management
Improvements Could Enhance Recovery Program. Washington, D.C.
Lande, Russell. 1988. Genetics and Demography in Biological Conservation.
Science 24(1):1455-1460.
Shaffer, Mark L. 1981. Minimum Population Sizes for Species Conservation,
Bioscience 43(2):131-134.
U.S. Fish and Wildlife Service. 1973.
Wildlife Management and Research.
Washington, D.C.
Tactical Planning in Fish and
Resource Publication 123.
U.S. Fish and
pp. i-iv.
Washington,
Wildlife Service. 1980.
In: Endangered Species
D.C.
Appendix I. Priority System.
Program Management Document.
U.S. Fish and Wildlife Service.
ranking candidate species.
6(8):1.
1981. Service prepares guidelines for
Endangered Species Technical Bulletin
U.S. Fish and Wildlife Service. 1983. Endangered and
Listing and Recovery Priority Guidelines. Federal
48(184):43098 and 51985.
U.S. Fish and Wildlife Service.
Division, Federal Building,
Threatened Species
Register,
1988. Recovery 2000. Endangered Species
Fort Snelling, Twin Cities, Minnesota.
05/25/90
APPENDIX I
RECOVERY PLAN FOI~IAT
05/2 5/90
TABLE OF CONTENTS
Title/Approval Page
Disclaimer Page
Literature Citation
Acknowledgements Page
Executive Summary
Recovery Plan Development (Outline)
Introduction
Recovery
Implementation Schedule . .
Sample Definitions and Acronyms
Appendix
Page
1—1
1-2
1-3
1-4
I-S
1-8
‘-9
I—li
1-13
1-19
1-20
Page
05/25/90
I-i
RECOVERY PLAN FORMAT
Title/Approval Page
Should be in the following general format:
(Technical, Technical/Agency, or Agency Draft - as appropriate)
SPECIES X
(Revised, Second Revision, etc.)*
RECOVERY PLAN
(Original Approved: October 1, 1976)~
(First Revision Approved, etc.)*
Prepared by the Species X Recovery Team
John Doe, Leader
U.S. Fish and Wildlife Service
Region 1
Portland, Oregon
Jim Johnson**
Oregon Wildlife Commission
Forest Grove, Oregon
Mary Smith
Cornell University
Ithaca, New York
for
Region I
U.S. Fish and Wildlife Service
Portland, Oregon
Approved:
Regional Director, U.S. Fish and Wildlife Service
Date:
(Include date, but not signature line on drafts)
*Include this line if the approval page is for a revision.
** If more names than space exists, list all members on a page following.
05/25/90
1-2
DISCLAIMER PAGE*
Recovery plans delineate reasonable actions which are believed to be
required to recover and/or protect listed species. Plans are published by
the U.S. Fish and Wildlife Service, sometimes prepared with the assistance
of recovery teams, contractors, State agencies, and others. Objectives
will be attained and any necessary funds made available subject to budgetary
and other constraints affecting the parties involved, as well as the need
to address other priorities. Recovery plans do not necessarily represent
the views nor the official positions or approval of any individuals or
agencies involved in the plan formulation, other than the U.S. Fish and
Wildlife Service. They represent the official position of the U.S. Fish
and Wildlife Service ~nJyafter they have been signed by the Regional
Director or Director as aporoved. Approved recovery plans are subject to
modification as dictated by new findings, changes in species status, and
the completion of recovery tasks.
* Can indicate uncertainty of costs of cost estimates identified for task
implementation and/or time estimates for achievement of recovery, if
applicable, in the Disclaimer.
05/2 5/90
1-3
LITERATURE CITATIONS
Literature Citations should read as follows:
U.S. Fish and Wildlife Service. 19 . _________ Recovery Plan. City,
State. __ pp.
Additional copies may be purchased from:
Fish and Wildlife Reference Service:
5430 Grosvenor Lane, Suite 110
Bethesda, Maryland 20814
301/492-6403
or
1 -800-582-3421
The fee for the Plan varies depending on the number of pages of the Plan.
05/25/90
1-4
ACKNOWLEDGEMENTS PAGE
Acknowledgments Page (Optional)
The inclusion of an Acknowledgments page is at the discretion of the
Region responsible for preparing the plan. If included, it should recognize
individuals that contributed significant information/assistance during
plan preparation.
05/25/90
I-S
EXECUTIVE SUI9iARY
The Executive Summary should not exceed 1 single-spaced page. Arrange
to print extra copies of the Executive Summary for distribution to
interested parties. It should include:
Current Species Status: Status, population level/distribution (if
known), and vulnerability to threats. (Let the reader know up front the
condition of the species.)
Habitat Repuirements and Limiting Factors: List any specialized habitat
requirements and major threats to be addressed under Actions Needed.
Recovery Obiective: Choose among delisting, downlisting, or protection
of existing populations for a specific time period or for the foreseeable
future. Be ambitious, but do not set an unobtainable objective (obtained
from Part II of the recovery plan).
Recovery Criteria: Indicate the number and arrangement of viable
populations, protection and management procedures needed, and what threats
should be resolved.. Only by being specific in terms of numbers,
distribution, amount of habitat, level of protection/enforcement, etc.,
will the Service and the public be able to assess progress toward the
recovery objective.
Actions Needed: Present a numbered list of the major steps needed to
satisfy recovery criteria or at least make a significant improvement in
species status.
Total Estimated Cost of Recovery: A cost table may be provided as
follows. The bottom right-hand figure should reflect the total estimated
cost of recovery (e.g. consultations, permits, law enforcement activities,
land management activities, personnel requirements, etc). Costs may be
summarized if more applicable.
Year Need I Need 2 Need 3 Total
1990 $ $ $ $
1991 $ $ $ $
1992 $ $ $ $
Total $ $ $
Date of Recovery: Indicate the anticipated year objectives will be
completed. This may or may not be the last year listed in the above cost
table.
(See attached example(s), pages 6 and 7.)
I
0 5/25/90
1-6
EXECUTIVE SUMMARY OF THE RECOVERY PLAN FOR THE OZARK CAVEFISH
Current Status: This species is listed as threatened. Fourteen populations
are known from the three states of Missouri (1), Oklahoma (3) and
Arkansas (4). Historically, the species occurred in 24 caves of the same
region.
Habitat Requirements and Limitina Factors: The Ozark cavefish inhabits
cave streams of the Springfield Plateau in southwest Missouri, northeast
Oklahoma and northern Arkansas. Habitat loss and decreasing water quality,
due to urbanization, are the principal threats. Declining bat populations,
which provide an energy source to the caves, and normal low reproductive
rates of the cavefish also threaten the species’ survival.
Recovery Obiective: Delisting.
Recovery Criteria: To establish and/or maintain viable populations of the
Ozark at twelve locations.
Actions Needed
:
1. Monitor existing and experimental populations.
2. Establish five new populations and augment selected existing
populations.
3. Determine recharge zones for caves of existing and experimental
populations.
4. Develop and implement protection of recharge zones for each site of
existing and experimental populations.
5. Eliminate threats/habitat degradation through a combination of
consultation/permitting/cooperative programs.
Costs ($000’s):
Year Need 1 Need 2 Need 3 Need 4 Total
1990 3.0 .0 15.0 5.0 23.0
1991 3.0 60.0 10.0 5.0 78.0
1992 3.0 20.0 .0 5.0 28.0
1993 3.0 20.0 .0 5.0 28.0
1994 3.0 20.0 .0 5.0 28.0
1995 3.0 20.0 .0 .0 23.0
1996 3.0 20.0 .0 .0 23.0
1997 3.0 20.0 .0 .0 23.0
1998 3.0 20.0 .0 .0 23.0
1999 3.0 .0 .0 .0 3.0
2000 3.0 .0 .0 .0 3.0
Total Cost
of Recovery 33.0 220.0 25.0 25.0 283.0
Date of Recovery: Delisting should be initiated in 2000, if recovery
criteria are met.
05/25/90
I-i
EXECUTIVE SUMMARY OF THE RECOVERY PLAN FOR FASSETT’S LOCOWEED
Current Status: This species is listed as threatened. During a 1988
survey, Fassett’s locoweed has been relocated at four of eight historical
stations. Three of the sites are currently on the market or were recently
sold to new private owners. Only eight plants were found at the fourth
station, which is a highly developed lake shoreline.
Habitat Requirements and Limitina Factors: None of the four known sites
of Fassett’s locoweed are In protected ownership. Shoreline development
is the largest threat to the species. Plants are located on sandy
shorelines of land-locked seepage lakes where water levels fluctuate
regularly in response to rainfall patterns. The species may depend upon a
persistent seed bank to survive during periods of high water, then
germinating soon after a shoreline is exposed during low levels.
Recovery Objective: Delisting
Recovery Criteria: Protect and maintain ten separate and self-sustaining
populations of Fassett’s locoweed. These should include all known extant
colonies as well as introduced populations. Introduced colonies will not
be considered successfully established until after a lapse of fifteen years.
Actions Needed
:
1. Survey suitable habitat for additional populations, and acquire known
populations.
2. Monitor existing populations.
3. Conduct research on the biology of the species.
4. Establish new populations of Fassett’s locoweed.
5. Investigate and conduct necessary management activities
sites.
Costs (000’s):
Year Need I Need 2
1990 0.0 2.5
1991 20.0 2.5
1992 20.0 2.5
1993 20.0 2.5
1994 20.0 2.5
1995 50.0 2.5
1996 0.0 2.5
1997 0.0 2.5
1998 0.0 2.5
1999 0.0 2.5
2000 0.0 2.5
Recovery Cost 130.0 27.5
Date of Recovery: Delisting should be
criteria have been met.
Need 3
2.0
0.0
2.0
0.0
2.0
0.0
2.0
0.0
2.0
0.0
0.0
10.0
initiated
Need 4
5.0
5.0
5.0
.0
.0
.0
.0
.0
.0
.0
.0
15.0
in 2007,
at all key
Need 5
1.5
1.5
11.5
11.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
36.5
if recovery
Total
11.0
29.0
41.0
34.0
26.0
54.0
6.0
4.0
6.0
4.0
4.0
219.0
OS/25/90
1-8
RECOVERY PLAN DEVELOPMENT
OUTLINE
A Table of Contents should follow the Executive Summary and include:
I. Introduction
(List major headings)
II. Recovery
A. Objective
B. Narrative Outline for Recovery Actions Addressing Threats
C. Literature Cited
III. Implementation Schedule
IV. Appendix
(Individual appendix numbers may be listed
complicated plans).
for lengthy or
If the plan contains separate outlines for different populations or
management units then required to serve as the basis of jeopardy/adverse
modification determinations, then these major divisions should be included
in the Table of Contents, Sections II and III above.
05/25/90
1-9
In all narrative sections of the plan, avoid using “boiler-plate”
language or copying parts of other plans. Tailor each plan to the needs
of the individual species. When writing the plan, keep in mind those
subsections that will likely require changes in future revisions so that
they can be handled most efficiently (e.g. by whole page replacement).
I. INTRODUCTION
This section of the recovery plan serves several important purposes.
First, it acquaints the reader with the species, its status, and the threats
it faces. Second, because it is a source document for land managers,
economic interests, and other interested individuals, it should touch on
all relevant information. This does not mean that the Introduction should
be a dissertation on the species; rather it should be more of a review or
summary document. No topic should be covered in tremendous depth, but
all major aspects of the species’ biology should be mentioned, with
appropriate citations for further information. When dealing with less
known species, particularly invertebrates and plants, a few-word description
of its class/family affinities would provide a reference point for the
non-taxonomist. All major publications on the species should be referenced
in the LITERATURE CITED or REFERENCE section. Third, the introduction
will serve as an information source for the interested, but busy,
decisionmaker. It should therefore be arranged so that the information it
contains is quickly and easily accessible.
The following subsections for the Introduction may be adapted to suit the
biology of the species; however, keep in mind that the busy decisionmaker
will be thankful if the answers to obvious questions can be found by
glancing at the Table of Contents and flipping to an appropriate page.
A. Descriotion - Give the date listed and Federal Register citation
for the final rule. The description should not be extremely
technical. Note when the species was described and refer to the
best available technical descriptions. You may wish to mention
“look-alike” species and note how to differentiate, but the detail
should be more on the level of a field guide than a taxonomic
treatise. For reference, provide the recovery priority for this
species/group/ecosystem assemblage.
B. Distribution - Give historical and currently occupied range.
Include a map of appropriate scale to delineate these generally
without disclosing site-specific information. Be sure the map has
adequate margins to allow for binding and will reproduce clearly.
If appropriate, state the number of known populations (or centers
of distribution) and counties of occurrence. This subsection is
one that will likely require periodic updating.
05/25/90
1-10
C. Habitat/Ecosystem - This may be a separate subheading or, if little
information is available, may be combined with subsection D.
Include relevant information, such as soil type (particularly for
plants), plant or community associations (do not include an
exhaustive species list), elevation, requirements for water quality,
flow regimes, etc. Describe critical elements of the species
ecosystem that should be considered by persons proposing activities
that may affect the species or its recovery. Such elements may
include sensitive life stages, symbiotic relationships, cover,
food, the effects of actions favoring competitors, predators, etc.
This section should be in a format that lends itself to use in
information sheets developed for Section 7 consultations, Habitat
Conservation Plan(s) developments, or other management programs of
major public interest. If known, describe the tolerance of the
species to take of individuals or changes In essential elements of
its habitat for use in determining Incidental take. [Theproposal
has been made that discrete recovery populations or units of
critical habitat be the basis for determinations of effect during
Section 7 consultations. If that suggestion is adopted, these
guidelines will be further refined to reflect additional data
needs].
D. Life History/Ecology - Include what is known about phenology,
pollinators, dispersal, etc. (for plants), breeding habits, litter
or clutch size, diet, behavior, etc. (for animals). As in all
previous sections, try to focus on brevity without sacrificing
thoroughness and be sure to cite relevant literature.
E. Reasons for Listing - This will include an overview of the species’
decline (if appropriate) and the threats it faces. A description
of the current land management practices that are affecting or may
affect the species should be included, as they may have a direct
bearing on decisions regarding the recovery and management of listed
species. The description would also give a historical perspective
to future management issues or conflicts. Do not repeat information
presented in other sections. The intent here is to provide a
framework for the reader to understand the tasks specified in
Section II. The “Factors Affecting the Species” section of the
listing rule is a good starting point for this subsection.
F. Conservation Measures - For some species, conservation/recovery
efforts have been ongoing or will be initiated prior to approval of
the recovery plan. Any such activities should be mentioned here.
This subsection is the one that will most likely require updating
in future revisions.
G. Strateav of Recovery - This is to provide the reader with a
chronological overview of the species ecosystem restoration and
maintenance recovery actions. A sentence or two should be
05/25/90
1—11
included about all Priority 1 tasks identified in Section II, and
major Priority 2 tasks may be mentioned. This section may be
omitted from very simple plans, where the overview can be gleaned
from the Executive Summary or directly from the Narrative Outline.
II. RECOVERY
A. Obiective and Criteria
State the primary objective of the plan. State the recovery criteria
In quantitative terms (e.g., number of individuals or populations) whenever
possible. If the recovery objective includes removal of the species from
endangered status, make it clear whether this means reclassification to
threatened status or complete delisting. If the prospect of
reclassification is uncertain, a measurable interim objective may be used.
The 1988 amendments to the Act require an estimate of the recovery time,
which should also be stated in this section and should be based on the
assumption that recovery tasks will be implemented as scheduled and that a
determination has been made of the probable effect of anticipated human
activities on that schedule. The recovery objective and criteria may read
as follows:
“SDecies Y” will be considered for reclassification from
endangered to threatened when X geographically distinct, self-sustaining
populations are protected in ~ county(ies) of ~..t.iti..Y
(or in any other counties where native populations might be
discovered in the future) and they have been maintained for 1
consecutive years. Delisting the species will be considered
when X+ geographically distinct, self-sustaining populations are
protected in X counties for another Z consecutive years following
reclassification. The estimated date for recovery completion is
2010.
The brevity and apparent simplicity of the recovery objective section
is quite deceptive. Quantifying recovery criteria calls for creative
thought, and developing the criteria may require educated guesswork. This
may be difficult for scientists accustomed to basing their statements on
hard data rather than conjecture. However, plan authors should keep in
mind that concise and measurable recovery criteria are necessary; they
represent the central pillar of the recovery plan. Only explicit,
measurable goals will bring the overall recovery effort into focus and
promote the necessary funding. If the objective section includes such
terms as protected, stable or increasing populations, these should be
operationally defined, in light of such factors as generation time and
other relevant factors.
05/25/90
1-12
Population viability analysis concepts may prove useful in developing
recovery objectives and criteria. Studies to determine probable population
viability, and the optimum number and spatial arrangement of populations,
may be specified as tasks in the plan.
Although determining the appropriate spatial arrangement and number of
populations might require further research, some preliminary targets should
be identified. Populations should be defined and located so that a single
event, however catastrophic, would be unlikely to eliminate more than one
population. Delisting would generally require more viable populations
than would be required for downllsting. It might not be necessary for
recovery criteria to match any historical population level, if a lower
level will ensure the long-term survival of the species as a natural
component of its ecosystem. There may be cases where not enough habitat
remains to support a population that meets viability criteria. In these
cases, full recovery is clearly not achievable, and the plan should clearly
state why delisting is not a practical objective. In some cases,
evaluating the ability of the ecosystem to support viable populations can
be a recovery task.
All plans should state that the reclassification criteria are
preliminary, and that they may be revised on the basis of new information
(including research specified as recovery tasks).
B. Narrative Outline for Recovery Actions Addressing Threats
This section should be concise and action-oriented. Actions not known
to be required for recovery, even though possibly beneficial, may be
included. Though most of the tasks included in the outline should be those
that are expected to be carried out in the near future, all tasks necessary
to achieve full recovery of the species should be identified. Limiting
the Narrative Outline to tasks that are expected to be carried out in the
near future will sacrifice long-term planning for short-term goals and
will not give an accurate assessment of what is necessary to achieve the
stated recovery objective. If all tasks known are outlined, time frames
can be set as “to be determined” if they are dependent on the outcome of
earlier planned tasks.
A stepdown outline is not required; however, plan preparers should be
familiar with the stepdown process because it may be a useful tool in task
definition. Regional Directors may include stepdown outlines in plans at
their discretion.
The narrative outline should step down recovery needs as far as Is
necessary to reach the task level. Tasks are items that can be funded or
permitted independently. For example, under “Gather life history
information on Species X,” do not list “Study diet” and “Study social
05/25/90
1-13
interactions” as separate tasks unless you anticipate that separately funded
studies should be conducted. Use judgment in deciding how finely to slice
the tasks. In some instances, one aspect of life history may be of higher
priority than other aspects and should be designated as a separate task.
Any task receivina a Priority I desionation in the Imolementation Schedule
must be justified in the Narrative Outline as necessary to orevent
extinction
.
In the narrative, discuss the uncertainty surrounding cost estimates
that might prove inaccurate or imprecise. Indicate the degree of confidence
in the estimates, including costs associated with developing and
implementing conditions of Section 7 consultation biological opinions and
Section 10 Habitat Conservation Plans. Estimates should be in current
dollars; do not attempt to adjust for inflation. Estimates from other
agencies need to be similarly documented. (Note that Congress may fund
other Federal agencies based, in part, on these estimates. It will greatly
benefit other agencies’ budget requests if they can say “.... as indicated
in the Recovery Plan for the species.”)
Specifically identify in this section any recommendation for the
protection of habitat that is essential to the species. Describe its extent
and location (provided this specificity would not increase the risk of
take). Available options for land protection (e.g., fee purchase, easement,
etc.) should be considered as options. Essential habitat need not be
limited to currently occupied habitat or currently suitable habitat if it
is deemed important for eventual recovery of the species. (Note that any
habitat to be acquired by a Federal agency for endangered species must be
identified, at least in general area description, in the recovery plan
before the Administration will submit the request to Congress. As a very
minimum, land acquisition must be identified as a requirement for recovery.)
The Narrative Outline should include a set of “Strategies” that will,
when applied to the known threats, result in achievement of the recovery
objective. It is important to consider all strategies that may alleviate
known threats, such as research on disease, habitat protection, protection
from taking, captive propagation, reintroduction, control of competing
species, etc.
C. Literature Cited/References
All citations from Part I and II should be listed here. The AIBS style
manual presents the proper format for citations. This section should
reference all source documents for the Plan, but it need not be a complete
bibliography.
05/25/90
1-14
III. IMPLEIIENTATION SCHEDULE
This is a very important section of the recovery plan. It will be
used to secure and obligate funds, establish associated regulatory and
other management priorities, and will provide the basis for tracking plan
implementation. The Implementation Schedule should be preceded by a page
defining task priorities and acronyms used in the schedule. Several regions
have found an introduction to the Implementation Schedule, like the one
below, useful to the readers of Recovery Plans:
“The Implementation Schedule that follows outlines actions and estimated
costs for the recovery program. It is a guide for meeting the objective
discussed in Part II of this Plan. This schedule indicates task
priorities, task numbers, task descriptions, duration of tasks, the
responsible agencies, and lastly, estimated costs. These actions,
when accomplished, should bring about the recovery of the species and
protect its habitat. It should be noted that the estimated monetary
needs for all parties involved in recovery are identified and,
therefore, Part III reflects the total estimated financial requirements
for the recovery of this species.”
A hypothetical example follows this discussion. Each column of the schedule
is discussed below:
A. Task Priority - In contrast to the Narrative Outline, tasks in the
Implementation Schedule will be arranged in priority order; thus, all
Priority 1 tasks will be listed first, consolidating them and increasing
their visibility. Assign task priorities as follows:
Priority 1 - An action that ~ be taken to prevent extinction or
to prevent the species from declining irreversibly in the
foreseeable future.
Priority 2 - An action that must be taken to prevent a significant
decline in species population/habitat quality, or some other
significant negative impact short of extinction.
Priority 3 - All other actions necessary to meet the recovery
objectives.
05/25/90
1-15
B. Task Number - This should be taken directly from the Narrative Outline.
Include only the lowest “stepped down” tasks. As an example, in the
following segment:
2.0 Protect existing populations of X plant
2.1 Build enclosures to prevent deer browsing at
three population sites
2.2 Remove competing vegetation once annually
The step 2.0 would not appear in the Implementation Schedule, but 2.1 and
2.2 would.
C. Task Descriotion - This may be taken verbatim from the Narrative
Outline, or slightly modified for the sake of brevity.
D. Duration - Indicate whether the task is “ongoing,” whether it needs to
be “continuous,” and the estimated number of years that will be required
for its completion.
E. ResDonsible Party - Indicate each FWS Region and program that will be
actively involved and/or commit funds to the task. If more than one Region
or organization is involved, use an asterisk to identify the lead entity.
The Service need not be included if it has no financial involvement in a
particular task. All other organizations involved and/or committing funds
to the task should also be listed, based on coordinated decisions regarding
recovery implementation task responsibilities.
F. Cost Estimates - Though ideal to designate each Fiscal Year
specifically, beginning with the FY subsequent to that in which the plan
is approved, setting up hypothetical “FY 1, 2, 3’ format is often
necessary. Avoiding the hypothetical format, if at all possible, emphasizes
the importance of funding and implementing tasks in a given year. Service
costs should be identified separately from those of others and should
include all major Service costs associated with management of the species.
Although this breakdown requires additional effort and coordination with
other agencies, it increases the value of the implementation schedule for
Service budgeting, as well as providing an estimate, of the overall cost
of the species~ recovery. Costs should align with the respective entity
in the Responsible Party columns. Dollars should be shown in thousands.
Other agencies will also benefit by being able to show in their own budget
submittals that their funds are identified in an approved recovery plan
and are therefore part of the overall coordinated recovery effort for that
species.
G. Comments and Notes - Other relevant information may be included here,
such as required person-hours, whether this task is specified in state-level
recovery plans, or other documents. This column may be left blank so that
users or reviewers may make appropriate notes next to various tasks.
05/25/90
RECOVERY PLAN IMPLEMENTATION SCHEDULE
TASK
DESCRIPI ION
Population dynan-ics
analysis
Reduce incidental
take of adults
Improve, operate
fish ladder
Secure adequate
streu~f lows
Determine optim-um
spawning run
Predator/prey
studies
Identify limiting
contininants
Reduce tribal
harvest
Initiate contact
with Mexico
TASK
DURA-TI
ON
(YRS
)
3
ongoing
ngoIng
ngo ing
2
2
2
rngo ing
1/2
~t~rurIvO~LE
FWS
Reg. Program
8 NERC
1
I
1
8
8
1
I
9
LE
FIJI:
DEN
MA’
NFRS
NFRS
EC’
MA
IA
~AHIY
Other
SIA
NMFS’
CAF6.C.
BPA
BR
CAI&C*
EPA
SIA
COST ESTIMATES
FY1990 FY1991
100
9
50
50
15
20
20
20
20
10
10
10
25
100
9
50
50
15
20
20
20
20
10
10
20
15
18
35
20
10
25
TASK
9
1.1
2.1
C (JMM[ NT S
3. 1
PRIOR-ITY
9
1
1
1
1
2
2
2
2
2
4.1
1.2
1.3
1.4
2.2
2.3
$000)
FY1992
100
9
50
50
15
20
20
20
20
l0
10
20
15
18
35
20
10
25
5
— —
RECOVERY PLAN IMPLEMENTATION SCHEDULE (continued)
TASK
DESCRIPTION
Develop multi-state
agreement
Operate hatchery
successfully
Study disease in
other populations
Intraspecific
cumpetition
studies
Monitor
harvest
tribal
Improve upStream
migrant survival
Acquire
habitat
critical
easement
Rehabilitate
spawning habitat
Improve hatchery
disease status
Compare survival
stocked fry vs.
fingerlings
TASK
DURA-T
ION
(YAS)_
2
ongoing
2
2
ongoing
ongoing
2
5
I
2
RESPONSIBLE PARTY
FUS
Reg. Program Other
1 FIJE
1
8
8
I
I
I
I
1
NFRL
NE RC
FUE’
RF
FIJI
FH
BIA
SPA
EOE
OLM
FS
COST ESTIMATES
FY1990 FY1991
200
10
25
10
10
10
200
10
25
15
15
15
1 COMMENTS
PR IOR -
ITT
9
2
2
3
3
3
3
3
3
3
3
I ASK
9
2.4
5.1
1.5
1.6
2.5
3.2
4.2
4.3
5.2
5.3
$000)
F Y 1992
20
200
50
25
10
25
25
25
125
10
50
50
35
15
— —
RECOVERY PLAN IMPLEMENTATION SCHEDULE (continued)
PR IOR-ITY
9
3
3
3
3
TASK
9
6.1
6.2
6.3
6.4
— —
TASK
DESCRIPTION
Produce p~hlets
Meet with groups
of sportsmen
Inform state/fed
elected reps
Set up volunteer
program
I ASK
DURA-T
ION
(YRS)_
1/2
ongoing
ongoing
2
RESPONSIBLE I’AKIT
RiDS
Reg. Program Other
1
I
1
9
I
PA
FIlE
PA’
LS
PA’
FIJI:
COST ESTIMATES ~$000)
FY1990 FY1991 FY1992
5
5
1
S
5
1
625 168
3
S
51
15
S
COMMENTS
I—.
Co
* Denotes lead responsibility for a given task.
1-19
SAMPLE DEFINITIONS AND ACRONYMS PAGE
Priorities in column one of the following implementation schedule are
assigned as follows:
1. Priority 1 - An action that ~ be taken to prevent extinction
or to prevent the species from declining irreversibly in the
foreseeable future.
2. Priority 2 - An action that must be taken to prevent
decline in species population/habitat quality or some
significant negative impact short of extinction.
a significant
other
3. Priority 3 - All other actions necessary to meet the recovery
objective.
Key to Acronyms used in Ininlementation ~a-ka,41e
BIA
BLM
BR
CAF&G
COE
EPA
FS
FWS
- Bureau of Indian Affairs
- Bureau of Land Management
- Bureau of Reclamation
- California Fish and Game
- Corps of Engineers
- Environmental Protection Agency
- Forest Service
- Fish and Wildlife Service
- Environmental Contaminants
- Engineering
- Fish and Wildlife Management
- Fish Hatcheries
- Fish and Wildlife Enhancement
- International Affairs
- Law Enforcement
- Legislative Services
- National Ecology Research Center
- National Fisheries Research Laboratory
- National Fisheries Research Seattle
- Public Affairs
- Refuge
Assi stance
NMFS - National Marine Fisheries Service
EC
DEN
MA
FH
FWE
IA
LE
LS
NERC
NFRL
NFRS
PA
RF
05/25/90
1-20
IV. APPENDIX
Completed plans should contain a list of reviewers. All letters of
comment should be kept on file as part of the administrative record.
Substantive letters or comments may be included in the Plan at the
discretion of the Regional Director. Other pertinent material such as
referenced policy statements or agency documents should be included. If
the appendix is particularly lengthy, it should be preceded by a title
page and a definitive, paginated list of the contents.
All significant comments that are not printed in the appendix should
be made available to other Federal agencies that will use the recovery plan.
05/25/90
APPENDIX II
ORGANIZING THE RECOVERY EFFORT: ROLES AND OPTIONS
05/25/90
TABLE OF CONTENTS
Page
Organizing the Recovery Effort -- Personnel Considerations
Sample Recovery Team Appointment Letter
Recovery Team Responsibilities
Recovery Outlines -- Memo and Format
Lead Regions for Endangered Species Activities
Species Status Report
Part I - Status of each listed species with approved plans
Part II - Status of development and implementation of plans
Part III - Individual species recovery progress
• . . 11—1
• . . 11-4
• . 11-6
• . . 11-8
• . . 11-10
• . 11-19
• . 11-20
11-21
11-22
OS/2 5/90
lI—I
ORGANIZING THE RECOVERY EFFORT- -PERSONNEL CONSIDERATIONS
A. Service Biolociists
Service biologists may write recovery plans or act as technical editors,
working with either the recovery team or the individual Cs) contracted to
write the recovery plan. In addition, Service biologists coordinate, or
may actually conduct both management and research-oriented recovery tasks.
It is the responsibility of these individuals to collaborate as appropriate
with Federal, State, and independent personnel. Service biologists submit
budget proposals for recovery activities, they assist State agencies with
recovery proposals for Section 6 funds, and ensure coordination of project
funding among other agencies. Service biologists knowledgeable of
consultation requirements can advise on the likely effects of development
or other human activities on the species. Such a person could also serve
as a future point of contact for persons conducting regulatory programs
related to this species/ecosystem group. Service biologists, also often
members of the recovery team, may act as the liaison between the Service
and the recovery team.
B. SDecies Recovery Coordinators
Species recovery coordinators have been established for several listed
species with high public visibility or unusually complex recovery programs.
A species coordinator serves under the Regional Director as the Service’s
focal point for all matters relating to recovery of the species. The
responsibilities include coordinating research and recovery actions among
all involved agencies and individuals and working with Region 9, Division
of Endangered Species and/or the Regional Public Affairs Officers to provide
a continuing source of public information on the Service’s activities and
the species’ recovery progress.
C. Recovery Teams
1. Description
A recovery team provides biological advice to a lead Regional Director.
A team can be established as a species-specific recovery team, such as the
Whooping Crane Recovery Team, or as a group or ecosystem-specific recovery
team, such as the New Mexico Plant Recovery Team. The recovery team serves
only in an advisory capacity to the Service. The Regional Director, not
the recovery team, exercises the Service’s authority and responsibility with
respect to all recovery actions.
A team may write the recovery plan for a species or provide technical
editing. In appointing a recovery team, a Regional Director should clearly
indicate the role it is to play and the products expected of it. A team
OS/25/90
11-2
responsible for more than one plan may divide its members into working
groups for the separate plans. Recovery teams may also be formed to serve
strictly in an advisory capacity to the Regional Director, leaving the
plan preparation to a different party.
2. Selection and Appointment
Factors for selection of team members are: 1) expertise with respect
to the species or the ecosystem in which it is or may once again become a
part; 2) current involvement with the species or closely related species;
and 3) special knowledge of one or more threats contributing to the listed
status of the species. Within size constraints, teams should include
individuals of as many disciplinary perspectives as practical and
appropriate. However, recovery teams are exempted from the Federal Advisory
Committee Act, which would otherwise allow any individual or group to
request to be placed on such an advisory group. Teams often include
representatives of State, Tribal, or Federal agencies, academic
institutions, conservation organizations, and other constituencies with an
interest in the species and its recovery.
The size of recovery teams is at the discretion of the Regional
Director. In certain cases, they may be as small as one or two people;
however, a more broadly based team will usually be advantageous. The
Regional Director may designate the team leader or allow the team to make
the selection. Though in general, it is preferable for the team leader to
be a Service employee, the team leader should be selected for his/her
knowledge of the species and its related concerns or because of leadership
ability. If the team is divided into working groups to prepare more than
one plan, a team member is appointed by the team leader to take charge of
each group. Teams may also use consultants who offer special expertise
but are technically not members of the team. In addition, a team may invite
observers from interested organizations, other agencies, universities, and
foreign governments to attend team meetings.
Recovery team members and consultants are appointed by lead Regional
Directors with the approval of the prospective team member’s employer, and
in consultation with the States, other cooperating organizations or foreign
governments, and the Director (through Region 9, Division of Endangered
Species). Potential nominees should be fully informed by the Regional
Director of the implications of team membership such as costs, workload,
and time constraints. The appointment letter should explain these items in
detail. (A sample appointment letter appears on the following page.)
After the recovery plan has been completed, the recovery team may continue
to serve indefinitely in an advisory capacity to the Regional Director,
and at the Regional Director’s request may take an active role in
coordinating recovery activities.
Public announcements on the selection of recovery team leaders, members,
and consultants may be made by the lead Regional Director. A joint,
simultaneous announcement of a recovery team appointment by the Service
05/25/90
11-3
and a State wildlife agency director may occur where appropriate and if
requested. This is especially appropriate for species for which a State
plays a central role.
05/25/90
11-4
SAMPLE RECOVERY TEAM APPOINTMENT LETTER
If the team member is employed by a public agency, the letter should be
addressed to the head of the agency and request the services of the
employee. Minor wording changes will be necessary. Verbal concurrences
from the prospective team member should be obtained before the letter is
sent. Discussion of travel expenses should be tailored to the specific
situation.
Dear
The (common name, followed by scientific name) was recently listed by
the U.S. Fish and Wildlife Service as (threatened or endangered) under the
Endangered Species Act of 1973, as amended. This Regional Office has the
responsibility to develop a Recovery Plan for this species. To accomplish
this task, we are forming a recovery team comprised of persons who have
experience with the species or the threats it faces. Members of a recovery
team serve at the pleasure of the Fish and Wildlife Service Regional
Director who has lead responsibility for recovering a listed species.
Although the role of recovery team member is strictly advisory in nature,
the team’s recommendations normally guide the Service, other Federal
agencies, and even State governments in recovery activities.
I would like to appoint (name of appointee) to be a member of the
recovery team for (state species). His/Her expertise would be invaluable
in the development of a recovery plan. Other prospective team members are:
(list the individuals, and their affiliations, if any)
The recovery team is expected to complete a first draft of a recovery
plan by (state date), with the final plan completed by (state date). I
expect that approximately (state number and duration) team meetings will
be necessary during preparation of the plan. The team will have substantial
latitude in setting the time and location of these meetings. Once the
recovery plan is complete, the team may periodically asked to advise me on
various matters until the species is recovered.
I hope to schedule the first meeting of the recovery team, a one-day
session, on or before (state date). The Service’s liaison to the team is
(state name and phone number), who will be contacting (him/her) shortly.
Please feel free to call (him/her) or me at any time if you have any
questions. 1 hope you will be able to make this contribution to the
preservation of our nation’s biological heritage.
Sincerely,
Regional Director
05/25/90
11-5
3. Fish and Wildlife Service Oversight
The Service lead Regional Director directs teams through:
a. Establishing and terminating teams when appropriate;
b. Appointing, removing, and replacing team members and
consultants as necessary;
c. Approving recovery plans (and their subsequent revisions and
updates);
d. Developing the team’s operating and planning guidelines; and
e. Appointing a Service employee as an active team
member or team liaison.
4. Coamiunications
Teams may meet •as frequently as necessary. Experience indicates the
need for each team to prepare minutes of each meeting and submit them to
the Regional DIrector for distribution to cooperating parties and affected
States and other agencies. Reports on accomplishments, such as inventory
work, are often presented at team meetings and should be included in the
minutes.
Unless the team leader is a Service employee, Service letterhead and
franked enveloped should not be used for team business. To do so could
imply that the team is expressing Service policy or positions. Official
Service letters to a team are directed to the team leader. For species
that occur in more than one Region, the lead Region will keep the other
involved Region(s) fully informed of team activities. When more than one
Region has a team for a given species, the Region with lead recovery
responsibility must carefully coordinate among the teams.
5. Funding
Although salary, per diem, and travel costs associated with recovery
team activities are normally borne by the members’ employing agencies,
routine business expenses are borne by the Regional Director. The Regional
Director has the discretion of also furnishing travel and related funds
for the expense of team members. Service personnel serving on a recovery
team are supported by their own station funds. Travel expenses of
consultants on team business, clerical and drafting services, supplies,
printing costs, and other special services for team business are funded by
the lead Region. Observers, however, will cover their own expenses.
If the team leader is not a Federal employee, a contract or purchase
order may be used for financing routine tear~ business. This agreement can
remain in force as long as necessary. As soon as it is determined that
05/25/90
11-6
funds are available for the next fiscal year, the Regional Director will
provide the team leader, in writing, with an allotment available to support
the team. If the team leader is replaced by another non-government
employee, a new agreement must be prepared and signed by the Regional
Director and newly appointed team leader.
6. Responsibilities of A Recovery Tean
In addition to the activities described in the above guidelines, a
recovery team ~ solely at the request of the Regional Director, provide
assistance on other aspects of Service responsibilities toward the species
(e.g., Section 7 consultation, identification of critical habitat, and
research proposals). In consultation with the Regional Director, the team
also may provide requested assistance to other participating agencies but
if, and only if, the team is willing to do so. Should the team provide
any policy analysis or recommendations, the recipient must be cautioned
that this information represents the team’s views, not necessarily the
views of the Service or any other agency.
Recovery teams also may inform interested parties of Its activities,
as the team considers appropriate. When outside contacts occur, the team
must from the beginning accurately describe its relationship to the Fish
and Wildlife Service.
For the protection of the recovery team members, and in the best
interests of species recovery, the recovery team should be mindful of a
number of situations that it should avoid. Specifically, it is
inaDDroDriate for a recovery team to:
-- Represent itself as speaking for any agency.
-- Distribute draft plans. The Regional Director will obtain the views
of cooperators, other Federal and State agencies, and the public.
-- Independently implement recovery actions. This remains the job of
the individual cooperating agencies, although recovery teams may participate
in recovery actions with the approval of the Regional Director and
appropriate officials of relevant cooperating agencies.
-- Act as an official consulting group to anyone other than the
Regional Director on socio-economic, political, or administrative issues.
- - Designate Critical Habitat in the context of Section 4 of the
Endangered Species Act. This is the responsibility of the Secretary of
the Interior. The team may be requested, or may volunteer, to identify
such habitat for the Regional Director.
-- Call to the attention of offending parties any actions it judges
to be adverse to the species. This is the responsibility of the Secretary
of the Interior or other Federal or State agencies, as appropriate. The
05/25/90
11-7
team should bring any such actions to the attention of the Regional
Director.
-- Act through the news media, conservation organizations, State or
Federal legislators, or other parties to influence any agency decisions,
except In so far as the lead Regional Director advises them, in advance.
-- Reallocate agency responsibilities with respect to the assigned
species or assign responsibilities beyond those approved in the plan.
-- Prepare Environmental Impact Statements or accept other
responsibilities outside its planning assistance roles without the prior
concurrence of the Regional Director.
-- Lobby for funds without the concurrence of the Regional Director.
-- Interject itself in litigation or regulatory actions.
-- Pressure cooperating agencies to accept the team’s viewpoint.
-- Take any action or represent any concept, either as individuals or
as a team, that would adversely affect its professional integrity.
These rules are not intended to limit the ability of individuals to
perform duties associated with their usual occupation, but are only intended
to guide behavior with respect to their roles as members of a recovery team.
7. Contracting
The Service may use private contractors to write recovery plans. These
individuals may be employees of State conservation agencies, universities,
museums, private conservation organizations, or private contracting
businesses with relevant expertise. Contractors may also be used to conduct
recovery task projects under separate contracts.
05/25/90
0
United States Department of the Interior
FiSH AND WILDLIFE SERVICE
WASHINGTON. D.C. 20240
AOOA3S OIU.Y ?~E 0c’TO.
~ ~ ~LaLgI UW~
In Reply Refer To:
FWS/EHC/BLR
FEB 2 i989
Memorandum
To: Regional Director, Regions 1, 2, 3, 4, 5, 6, 7, and 8
From: Director
Subject: Early Planning for Recovery of Endangered and Threatened Species
(Due Date: 60 Days)
For several years Ihave been concerned about the Fish and Wildlife
Service’s (Service) effectiveness in managing the recovery of listed
species. During reauthorization of the Endangered Species Act, Congress
expressed an interest in effective recovery programs for listed species,
and the General Accounting Office has recently issued a report on the
effectiveness of the Service’s recovery activities, outlining areas for
Improvenent.
It is important that the Service not only pursue conservation goals, but
that it be able to report to Congress and to the public on the status of its
recovery progress. Consequently, I am instituting a means of encouraging
early attention to planning recovery efforts. Whenever a species is listed,
the responsible lead Regional Director will submit to mm, within 60 days of
publication of the final rule, a recovery outline that briefly explains
the Region’s intended course of action with respect to hme the species’
needs will be addressed. The outline will not be a recovery plan, but
should explain whether a plan will be prepared and the estimated time of
its completion, whether a recovery team will be appointed, and whatever
other recovery act1e~ are anticipated for the species. An outline format
is attached for your use. The Division of Endangered Species and Habitat
Conseryatlem will ~1flta1n a file of recovery outlines for purposes of
informatios and tracking. The Division will also provide me with policy
review, as meeded, of outlines. The first recovery outlines are due to me
60 days after the date of this memorandum and should cover all species
listed since January 1, 1989. Regional progress t~,ards development of
recovery plans will be monitored by the Division using the copies of cover
pages that are submitted for all draft and approved plans.
Attaciwnent
11-9
RECOVERY OUTLINE FORMAT
1. Species Name
Common:
Scientific:
2. Date Listed
3. Recovery Priority Number:
4. Anticipated Recovery Action include information from applicable items
bel ow.
Appoint recovery team (indicate expected time of appointment)
Prepare recovery plan (indicate expected date for draft)
Acquire habitat (describe briefly, if known)
Consult with Federal Agencies (indicate which ones)
Consult with private interest (give names)
Develop habitat conservation plan (indicate participants)
Develop other agreements (describe and indicate participants)
Enforce trade/taking restrictions (explain need and means)
Undertake research (indicate questions to be addressed)
Other (as appropriate to particular species)
4. Date/Signature of Regional Director
OS/2 5/90
11-10
LEAD REGION(S)
FOR ENDANGERED SPECIES ACTIVITIES
05/25/90
11—11
TAJ~ U
United States Department of the Interior ________
•~ a’-.’ ~‘ FISWHAASHNIDNGWTIOLDNL, IDF.EC. SE2R02V4I0CE -U —
AOOESS Offi.V YWf OIAEC”TOR.
~IS~ A~O ~LOU~E SEAVICI
In Reply Refer To:
FWS/EHC/BLR
~DD 171989
Memorandum
To: Regional Director, Regions 1, 2, 3, 4, 5, 6, 7 and 8
From: Deputy Assistant Secretary for Fish and Wildlife and Parks
Subject: Lead Regions for Endangered Species Activities
(Response due June 1, 1989)
Effective April 15, 1989, the attached document will guide assignmentof
lead Regions for endangered species activities within the Service. It Is
based on the draft circulated in December 1988, as modified to ensure
consistency with the planned delegation of permits to Regions and to respond
to Regional comments on the earlier version. An evaluation will be
conducted in approximately 6 months to determine whether further
modifications are warranted.
The procedures described in the document depend on cooperation among
Regional Offices in deciding lead responsibilities and authority. Thus,
rigid formulas have been avoided in preference to mutual agreement in
assigning leads. Some responses to the draft questioned the degree to
which lead Regions would be responsible for activities occurring in other
Regions or the extent of coordination necessary between lead and other
Regions undertaking initiatives. Such matters should be decided by mutual
arrangement among the Regions involved; it Is not intended that the document
will specify the details of these agreements.
The Division of Endangered Species and Habitat Corfservation is developing
a database to track lead listing and recovery assignments; a draft is
attached reflecting Regional coriinents on the preliminary list of recovery
leads circulated in December. Please note that inclusion of Region 8 In
the range of a species reflects the species’ occurrence outside U.S.
territory, rather than the existence of a research program directed at its
recovery. Recovery leads for three listed species (American peregrine
11—12
falcon, Olive ridley sea turtle, and piping plover) remain to be determined.
In these cases, Regions involved should coordinate lead agreements and
transmit the results to me by June 1, 1989, for incorporation into the
tracking database.
/
Attachments
V
11-13
ASSIGI~4E~T OF’ LEAD REGIONS
FOR E~AN~Pfl) A~ TI~EATE~~ SPECIES
This docwnent is intended to guide the assigrment of lead responsibility
for endangered and threatened species listing, recovery, consultation, and
permit issuance when the range of a species or scope of an activity is not
confined to a single Region. The essential concept eribodied in the
foll~ing guidance is that lead responsibility and authority and the degree
and character of any subsequent coordination between lead and non—lead
Regions are metters appropriately decided by mutual agreement among Regions.
The Washington Office will not rr~ke lead assigrnnents or prescribe the nature
of inter—regional relations unless there is a failure among affected Regions
to reach agreement.
Lead Region Database
The Washington Office will n~intain a database of lead Regions by species
for listing (including candidate monitoring and asses~rent) and recovery.
It is expected that in most cases a single Region will function as lead
for all such activities regarding a species. In ~ circtnnstances,
functional leads for a given species n~y be divided among Regions so that,
for exaxr~le, one Region would have the lead for listing a species and
another Region have the lead for recovery. Such divided responsibilities
will be noted in the database.
Reporting Agreements and Resolving Disagreements
Any agreement reached among Regions regarding lead listing or recovery
responsibility for a species will be pron~tly corrrnunicated to the Director
in a memorandinn from the agreed—upon lead Region so that lead responsibility
can be tracked in the database. Any inability to reach agreement will
also be referred to the Director, along with an explanation of the substance
of the disagreement, for resolution.
Listing and Recovery
1. As a general rule, when the range of a species crosses Regional
boundaries, lead responsibility for candidate asses~ent, petition findings,
listing, and developuent of a recovery plan will be determined by agreement
among the Regions involved.
2. In the cases of sortie relatively wide—ranging species, it n~y be
necessary to divide lead responsibility so that different Regions have
responsibility for different geographic segments of the species’ range (in
which case the database will treat each segment as a seFarate entry) or
for different aspects of the Service’s involvement with the species. Such
fragmentation of responsibility is expected to be necessary only rarely
11-14
2
and should be avoided when possible because of the increased coordination
required to assure range-wide compatibility in the way species are treated.
3. A lead Region is responsible for keeping all other Regions that share
portions of the species’ range aware of the state of its involvement with
the species. When a Region with lead responsibility for a species
undertakes a significant action such as listing, reclassification, or
approval of a recovery plan, it is responsible for circulating draft
docimients to other involved Regions and obtaining their written concurrence
before undertaking the action. A rule submitted by a lead Region for
approval will be acc~r~nied by evidence of concurrence by other involved
Regions. Non—lead Regions are responsible for providing the lead Region
with any information available to them that bears on the species’ status
and for responding promptly to lead—Region requests for information or
evaluation regarding the species.
4. Except for cooperative programs with States funded under Section 6 of
the Endangered Species Act, or by doctmiented mutual agreement between the
concerned Regions, a Region with lead recovery responsibility for a species
will also be responsible for coordinating any funding, research, or
management initiative for the species, even if the initiative originates
with another Region having current or historical range for the species or
with Region 8. Section 6 initiatives by a non—lead Region will be that
Region’s responsibility in consultation with the recovery lead Region.
Thus for instance, Region 2 has overall responsibility in consultation
with the other Regions involved for defining research needs, formulating a
budget, and developing a recovery strategy for the whooping crane, although
Regions 4 and 8 may be the principal recipients of funds for establishing
a non-migratory flock in the Southeast. Region 4, hc~ever, has primary
responsibility for cooperative programs with its States on sea turtles,
and will consult with Region 2 in order to ensure consistency between those
programs and overall conservation goals for these species.
Permit Issuance
1. In general, the lead Region for issuance of permits to take native
endangered species will be the Region in which the permitted activity is
to take place, except that the Office of Management Authority, in
consultation with Region 8, will retain lead responsibility for issuance
of export, import, and interstate and foreign corrm~rce permits.
2. When an application applies to activities that would occur in more
than one Region, the affected Regions will mutually agree upon which Region
will ta~:e the lead in processing the application. If one of the Regions
is the lead recovery Region for the species, that Region should take the
lead in processing the application.
3. In general, all Regions in the range of a species should be offered an
opportunity to conirient on an applicution dealing with that species, and
where recarriendations differ, there should be discussion among the Regions
11—15
3
to attempt to resolve them. Special consideration should be given to
corrinents of the Region having the lead for recovery of the species.
4. An application directed to any Regional Office or to the Washington
Office will be referred internally to the Office with issuing responsibility
and authority. The applicant will not be required to knc~ beforehand which
Region has issuing responsibility and authority.
Consultat ion
1. When an action takes place in more than one Region, generally the lead
Region will be the one in which the greatest impact or the largest ntm~ber
of affected species occurs. When there is a question on this point, the
Regions involved will agree on a lead. If agreement cannot be achieved,
the case will be referred to the Director for resolution. If a Federal
agency initiating consultation has a question as to which Region should
have the lead, it should seek the advice of the Washington Office.
2. Lead responsibility for a consultation will be determined independently
of lead recovery responsibilities for the species involved. When a Region
consults on a species for which it does not have lead recovery
responsibility, it will be responsible for coordinating with the recovery
lead Region to ensure consistency between consultation results and other
activities relating to the species. The level of coordination necessary
is subject to mutual agreement between Regions, and a recovery lead Region
may release other Regions from the obligation to coordinate on non—jeopardy
opinions. The Regional Director that signs a biological opinion is fully
responsible for its contents and has full authority for any jeopardy finding
or other element of the opinion.
3. The Service nay enter into agreements with agencies requiring
consultation on programs with geographically broad effects in order to
establish a framework for assigning lead responsibilities among Regions.
11-16
Page No.
12/21/89
Spec ies
1
LEAD REGIONS FOR LISTED SPECIES
Range (asterisk indicates
lead —— extirpated in
parentheses)
Bat, gray
Bat, Indiana
Bat, Ozark big—eared
Bat, Virginia big—eared
Bear, grizzly or brown
Caribou, woodland
Cougar, eastern
Dugong
Ferret, black—footed
Jaguarundi
Manatee, West Indian (Florida)
Ocelot
Otter, southern sea
Seal, Caribbean monk
Seal, Guadalupe fur
Wolf, gray
Wolf, red
Crane, whooping
Curlew, eskimo
Eagle, bald
Falcon, American peregrine (eastern)
Falcon, American peregrine (western)
Falcon, American peregrine (Alaska)
Falcon, Arctic peregrine
Falcon, northern aplomado
Goose, Aleutian Canada
Pelican, brown
Plover, piping (Atlantic coastal)
Piping plover (interior)
Rail, Yuma clapper
Tern, least
Tern, roseate
Vireo, black—capped
Vireo, least Bell’s
Warbler (wood), Kirtland’s
Woodpecker, ivory—billed
Woodpecker, red—cockaded
Alligator, American
Boa, Virgin Islands tree
Rattlesnake, New Mexican ridge—nosed
Tortoise, desert
Turtle, green sea
Turtle, hawksbill sea (—carey)
Turtle, Kemp’s (Atlantic) ridley sea
Turtle, leatherback sea
Turtle, loggerhead sea
Turtle, olive (Pacific) ridley sea
Toad, Puerto Rican
Catfish, Yaqui
2, 3*,4, 5,6
2,3*,4,5,6
2*, 4
4,5*
1,6*, (2,3)
1*,8, (3,5,6,7)
5*,8, (3,4)
l*,8
6*, (2,8)
2*,8
2,4*,8
2*,8
l*,8
(4*,8,NMFs)
l*,8,NMFS
3*,6,8 (1,2,4,5)
4*, (2,3,5)
l,2*,6 (3,4)
1, 2, 3, 4, 5,6, 7*8
l,2,3*,4,5,6,
3,4, 5*, 8
l*,2,6,8
7*
1,2,3,4,5,6,7*8
2*,8
1,7*
l*,2,4,8
2, 3,4,5,6,8
2,3*,4,6,8
1,2*
2,3*,4,6
4,5*,8
2*,8, (6)
l*,8
3*,4,8
8, (2,4*)
2,4*,5, (3)
2,4*
4*,8
2*,8
1*,2,6
l,2*,4,5,8,NMFS
1,2*,4,8,NMFS
2*,4,5,8,NMFS
l,2*,4,5,8,NMFS
l,2*,4,5,8,NMFS
l,2*,4,8,NMFS
4*, (8)
2*,8
11—17
2
LEAD REGIONS FOR LISTED SPECIES
Spec ies
Cavefish, Ozark
Chub, bonytail
Chub, Chihuahua
Chub, humpback
Chub, slender
Chub, Sonora
Chub, spotfin
Chub, Virgin River
Chub, Yaqui
Darter, leopard
Madtom, yellowfin
Minnow, bach
Pupfish, desert
Shiner, beautiful
Spikedace
Sguawfish, Colorado River
Sturgeon, shortnose
Trout, Lahontan cutthroat
Woundf in
Pearly mussel, Appalachian monkeyface
Pearly mussel, birdwing
Pearly mussel, cracking
Pearly mussel, Cumberland monkeyface
Pearly mussel, dromedary
Pearly mussel, green—blossom
Pearly mussel, Higgins’ eye
Pearly mussel, little—wing
Pearly mussel, orange—footed
Pearly mussel, pale lilliput
Pearly mussel, pink mucket
Pearly mussel, tubercied—blossom
Pearly mussel, turgid—blossom
Pearly mussel, white wartyback
Pigtoe, fine—rayed
Pigtoe, rough
Pigtoe, shiny
Pocketbook, fat
Riffle shell, tan
Beetle, American burying
Bird’s—beak, salt marsh
Cactus, Cochise pincushion
Cactus, Key tree
Cactus, Knowlton
Cactus, Kuenzler hedgehog
Cactus, Lloyd’s Mariposa
Cactus, Mesa Verde
Cactus, Suer pincushion
Cactus, bunched cory
Clover, running buffalo
Range (asterisk indicates
lead —— extirpated in
parentheses)
2,3,4*
1,2,6*
2*,8
1,2,6*
4*,5
2*,8
4*,5
1,2,6*
2*,8
2*,4
4*,5
2*,8
l,2*,8
2*,8
2*,8
1,2,6*, (8)
4, 5 , B , NMFS *
l*,6
2,6*
4*,5
4*,5
3,4*
4*,5
4*,5
4*,5
3*, (6)
3,4*,5
3,4*,5
4*,5
3,4*,5
3,4*,5
3,4*
3,4*
4*,5
3,4*,5
4*,5
3,4*
4*,5
2,3,4,5*,6,8
l*,8
2*,8
4*,8
2*,6
2*,8
2*,8
2*,6
1,2*,6
2*,8
3*,4,5, (6)
Page No.
12/21/89
11-18
Page No.
12/21/89
3
LEAD REGIONS FOR LISTED SPECIES
Species Range (asterisk indicates
lead —— extirpated in
parentheses)
Cycladenia, Jones
Daisy, lakeside
Dropwort, Canby’s
Fern, American hart’s—tongue
Frankenia, Johnston’s
Geocarpon minimum (=Sci. Name)
Globe—berry, Tumamoc
Goldenrod, Houghton ‘s
Harperella
Iris, dwarf lake
Lousewort, Furbish
Milk—vetch, Mancos
Milkweed, Mead’s
Monkshood, northernwild
Orchid, eastern prairie fringed
Orchid, western prairie fringed
Pink, swamp
Pogonia, small whorled
Pondberry
Thistle, Pitcher’s
2,6*
3*,8
4*,5
3,4*,5
2*,8
3,4*
2*,8
3*,8
4*,5
3*,8
5*,8
2*,6
3*,6
3*,5
3*,4,5,8
2,3*,6,8
4,5*
3,4,5*,8
3,4*
3*,8
11-19
SPECIES STATUS REPORT
(PARTS I, II, AND III)
05/25/90
11-20
SDecies Status ReDort - (Part I
)
STATUS OF EACH LISTED SPECIES Mliii APPROVED RECOVERY PLANS
Listed
SDecies
:
Species list to
be provided by DES
for each report data
call.
*Please report status with a single letter.
I—Improving (Increasing)
S—Stable
D—Decl ining
U—Un known
E—Exti nct
Date of Report:
Lead
Status:*
05/25/90
11-21
Listed
SDecies
:
SDecies Status ReDort - (Part II
)
STATUS OF DEVELOPMENT AND IMPLEMENTATION OF RECOVERY PLANS
____ _________ ____ Recovery
Achieved :~
Lead
Region
Recovery
2lan
Plan
* Does the species have an approved recovery plan?
either Y (Yes) or N (No). If a recovery plan is not
necessary, please respond with NA (Not Applicable).
Please answer with
anticipated as
** What is the stage of the plan? Please respond with F (Final-Approved),
Rev (Revised), A (Agency Draft), I (Technical Draft), I/A (Technical/Agency
Draft), U (Under Development), R (Under Revision), or NA (Not Applicable).
AAA What percentage of the species recovery objective has been met?
Please respond with an integer from 1 to 4.
1— O%-25% achieved
2— 26%-50% achieved
3— 51%-75% achieved
4— 76%-100% achieved
Date of Report: _______________
05/25/90
11-22
Date of Report:.......................
SDecles Status ReDort - (Part IJfl
INDIVIDUAL SPECIES RECOVERY PROGRESS*
1. Species:
2. Group:
3. Listing/Date:
4. Species Status:
5. Recovery Priority:
6. Recovery Plan Title:
7. Lead Region/Region Responsible for Recovery Plan:
8. Recovery Plan Stage/Date:
9. Recovery Objective/Criteria:
10. Major Activity Since Last Report:
11. Major Activity Over Next Reporting Period:
12. Recovery Achieved (%):
13. Information Current as of: .j~j..
Completed by : (name) Phone Number _____________
* To be completed for each listed species.
05/25/90
11-23
SDecies Status ReDort - (Part III
)
INDIVIDUAL SPECIES RECOVERY PROGRESS
I. Species — Common name, followed by scientific name
2. Group — Choose
Snails, Clams,
one: Mammals, Birds, Reptiles, Amphibians, Fishes,
Crustaceans, Insects, Arachnids, Plants
3. Listing/Date — Candidate, Threatened, or Endangered/Date final rule
published if Threatened or Endangered
4. Species Status — Choose one: Stable, Improving, Declining, Extinct,
Unknown.
5. Recovery Priority- Ranking from iC to 18.
6. Recovery Plan Title —
For listed species with
should be completed for
recovery plan and none
been initiated but one
more than one recovery plan, a separate report
each recovery plan. For species with no
intended, write N/A. If no recovery plan has
will be written at some point, write Pending.
7. Lead Region/Region Responsible for Recovery Plan —
If the lead Region for the species is different from the
responsible for the plans named above, list each Region.
there will only be one number here.
Region
Otherwise,
8. Recovery Plan Stage/Date —
For Stage, write F (Final-Approved), A (Agency Draft), T (Technical
Draft), T/A (Technical/Agency Draft, U (Under Development), R (Under
Revision), or NA (Not Applicable). If the plan has been updated,
indicated with -Rev. (Revised) after the date.
9. Recovery Objective/Criteria —
Choose Recovery Objectives among: Delist, Downlist, Stabilize, and
then summarize the Criteria in the Narrative portion of the recovery
plan. Include quantitative information.
10. Major Activity Since Last Report:
Describe progress on highest priority recovery tasks, indicating actions
initiated and any discernable effects on species status.
05/25/90
11-24
11. Major Activity Over Next Reporting Period:
Describe high priority tasks to be continued or initiated over a stated
period, and their intended result.
12. Recovery Achieved:
Indicate on a fractional scale the progress toward recovery, with “I”
signifying 0-25% of the total recovery objective being met, ~2”
signifying 26-50%, “3 signifying 51-75%, 4 signifying 76-100%.
13. Information Current as of:
Indicate the Date (month/year), of the information presented on each
individual species report.
05/25/90
APPENDIX III
PUBLIC INVOLVEMENT
05/25/90
TABLE OF CONTENTS
Page
Sample Newspaper Public Notice 111-1
Sample Press Release on Public Review of a Recovery Plan 111-2
Model Federal Reciister Notice of Recovery Plan Availability . . . 111-3
Sample Technical/Agency Review Draft Transmittal Letter 111-6
Public Meeting Guidance for Recovery Plan Review 111-7
Recovery Plan Distribution List 111-9
05/25/90
111—1
SAMPLE NEWSPAPER PUBLIC NOTICE
The U.S. Fish and Wildlife Service, an agency of the Department of the
Interior, is seeking public comments on a recovery plan written for (common
and scientific name of species), which was listed in (month and year of
listing) as a (threatened or endangered) species under the Endangered
Species Act of 1973, as amended. This species occurs (give geographic
description in general terms). (Describe the circumstances that pose a
threat to the species and warranted its listing).
The recovery goal is to restore the species to a secure status in its
natural setting. The recovery plan is being developed to provide a guide
for Federal and State agencies and other parties interested in helping the
species and identifies species and habitat factors of concern for those
considering activities that may affect the species. The plan describes
tasks that, when accomplished, should ensure the species’ survival, and
thereby justify its removal from the endangered and threatened species list.
The draft recovery plan is available for public inspection during (state
duration of regular business hours) at (local address and phone number).
A copy of the draft recovery plan and additional information can be obtained
from the Fish and Wildlife Service’s Regional Office at (provide address
and phone number). Public comments on the draft recovery plan are invited,
and should be sent to the Fish and Wildlife Service at either address by
(state date 60 days from date of Dublication in the Federal Reaister)
.
(If there is to be a public meeting on the plan, indicate the day, time,
place and any necessary procedures prospective participants need to know).
05/25/90
111-2
SAMPLE PRESS RELEASE ON PUBLIC REVIEW OF A RECOVERY PLAN
The U.S. Fish and Wildlife Service announced today that it is seeking
public input on a plan to bring about the recovery of the (common name of
the species), which was listed on (date) as (endangered or threatened).
The (common name of species) lives in (types of habitat) of (geographic
region) and faces extinction due to (state maximum of two primary threats
facing species). (Include a sentences or two on the life history of the
species; what it looks like, what it eats, what eats it, any notable
interaction with man, etc.)
The recovery plan released today resulted from a year-long effort by
scientists from State and Federal agencies and leading universities. It
calls for (state recovery objective and criteria) by (state two or three
major tasks proposed in plan). Once finished, it will guide the actions
of all Federal and State agencies whose actions affect the conservation of
the (species common name). The ultimate goal is to restore the species to
a secure status in its native ecosystem.
“It is very important for us to know what the public thinks about our
approach to recovering this species,” indicated the Service’s Regional
Director (name). The Service will collect written public comments on its
recovery plan over the next 60 days and, in addition, will conduct an open
public meeting on the plan at (state time, day, place, if appropriate).
Copies of the proposed plan can be obtained from the Service by writing
(state address) or calling (state phone number).
05/25/90
111-3
MODEL FEDERAL REGISTER NOTICE OF RECOVERY PLAN AVAILABILITY
Billing Code 4310-55
Department of the Interio
Fish and Wildlife Service’
Notice of Availability of a Draft Recovery Plan for (give title, capitalize
major words) for Review and Comment (no period)
AGENCY: Fish and Wildlife Service, Interior
ACTION: Notice of document availability
SU~lARY: The U. S. Fish and Wildlife Service announces the availability
for public review of a draft recovery plan for (give title). (It/they)
occur on (private/etc.) lands in (mention general areas likely to be
affected by recommendations in the plan). The Service solicits review and
comment from the public on this draft plan.
DATES: Comments on the draft recovery plan must b~ received on or before
(60 days from Dublication in the Federal Reaister)‘to receive
consideration by the Service.
ADDRESSES: Persons wishing to review the draft recovery plan may (purchase/
examine/obtain - details to be worked out) a copy by contacting (give names,
addresses, and phone numbers). Written conunents and materials regarding
the plan should be addressed to (give appropriate name at the above or
other address). Comments and materials received are available on request
for public inspection, by appointment, during normal business hours at the
(latter/above) address.
FOR FURTHER INFORMATION CONTACT: Give name, address, and telephone number
(commercial and FTS) of most appropriate staff person (or refer to ADDRESSES
section, if same address).
1 This is a notice to be published in the Notice Section of the
Federal Register. As such it has no 50 CFR Part 17 line, “Endangered and
Threatened Wildlife and Plants” reference in the title, or “List of
Subjects” section before the “Authority” citation.
2 30 days is the allowed minimum. The Departmental Manual strongly
recommends 60-day comment periods.
05/25/90
111-4
SUPPLEMENTARY INFORMATION:
Background
Restoring an endangered or threatened animal or plant to the point
where it is again a secure, self-sustaining member of its ecosystem is a
primary goal of the U.S. Fish and Wildlife Service’s endangered species
program. To help guide the recovery effort, the Service is working to
prepare recovery plans for most of the listed species native to the United
States. Recovery plans describe actions considered necessary for
conservation of the species, establish criteria for the recovery levels
for downlisting or delisting them, and estimate time and cost for
implementing the recovery measures needed.
The Endangered Species Act of 1973 (Act), as amended (16 U.S.C. 1531 et
~gg.)requires the development of recovery plans for listed species unless
such a plan would not promote the conservation of a particular species.
Section 4(f) of theAct, as amended in 1988, requires that public notice and
an opportunity for public review and comment be provided during recovery
plan development. The Service will consider all information presented
during a public comment period prior to approval of each new or revised
Recovery Plan. The Service and other Federal agencies will also take these
comments into account in the course of implementing approved recovery plans.
(Provide a brief paragraph of introduction to the specific plan being
developed. Mention the species covered by the plan, the reasons for
listing, the specific areas likely to be affected by measures proposed in
the plan, and the approval stage of the plan).
Public Conunents Solicited
The Service solicits written comments on the recovery plan described.
All comments received by the date specified above will be considered prior
to approval of the plan.
Authority
The authority for this action is Section 4(f) of the Endangered Species
Act, 16 U.S.C. 1533(f).
Dated: ____________________________________
Regional Director
05/25/90
111-5
Mail three individually-signed (no copies of signature allowed) sets of
this notice to:
Office of Federal Register
National Archives and Records Administration
Washington, D.C. 20408
(for overnight delivery services: Room 8301, 1100 L Street NW, Wash, DC
20005)
ATTACH a small slip with name and FTS number of Regional Staff person to
contact if OFR has any question or problems. Also, ask that you be called
with both the publication date and the comment period date.
Distribution of copies of notice: AFWE
DES
IRM
AEA/PA
It is important that a copy of the Federal ReQister announcement arrive
at the Division of Endangered Species at or before the time that the
originals arrive in the Office of the Federal Register. This requirement
allows time to coordinate the changes that are often requested by the
Federal Register, Regional Office, Washington Office, or other offices
prior to publication. Communication between the Office of the Federal
Register and the Washington Office will be more effective if the latter
has the subject document.
05/2 5/90
111-6
SAMPLE TECHNICAL/AGENCY REVIEW DRAFT TRANSMITTAL LETTER
Dear
Attached is the Technical/Agency Draft of the ____________________ Recovery
Plan (Plan). This Plan has already gone through an internal technical
review dealing primarily with the biological accuracy and sufficiency of
the Plan. We are now expanding the Plan review to allow government agencies
and the public to comment on all aspects.
“Responsible” agencies are designated for all of the recovery tasks in the
Implementation Schedule. While the U.S. Fish and Wildlife Service has no
specific legislative mandate to require other Federal and State agencies
to carry out specific actions for endangered species recovery, we believe
the designated agencies have the necessary authority to carry out the
identified tasks. The Implementation Schedule serves to alert those
agencies to the need for these actions and to justify seeking funds to
carry out the actions.
Comments should be submitted to the U.S. Fish and Wildlife Service, Region
Division of Endangered Species, to the attention of ____________________
Ml comments should be received by _____________________ so that they can
be considered in production of the final Recovery Plan. All comments will
be made available to all affected Federal agencies for their consideration
prior to approval and implementation of any Plan task.
We thank you in advance for your assistance.
Sincerely,
Regional Director
05/25/90
111-7
PUBLIC MEETING GUIDANCE FOR RECOVERY PLAN REVIEW
At the discretion of the lead Regional Director, a public meeting may
be held in the general area where the species occurs. If such a meeting
is to be held, an announcement of the location and time must be published
in the Federal Reaister and local newspapers. Any party having expressed
an interest in such a meeting or in the recovery plan should be notified by
letter. The meeting should be announced far enough in advance to allow
adequate notice. The Regional public affairs officer’s advice should be
sought with regard to scheduling and public notification. A minimum of 15
days should be allowed between the Federal Register announcement and the
meeting. The public comment period must be open during and for some time
after the public meeting. Schedule and hold the meeting expeditiously.
Participation in the meeting should involve as many employees as
necessary to make presentations and to serve as door attendants,
parliamentarians, legal advisors, etc. A Regional or Washington Office
Solicitor should be in attendance, particularly if controversy is expected.
If more than one meeting is to take place, each meeting should be run the
same way. Hiring a court reporter to prepare a record of the meeting is
recommended.
A suggested agenda for meetings follows:
Introduction. Discussion of the purpose, introduction of participants,
and explanation of agenda and rules for the record.
Service Dresentation. The presentation should summarize the biological
information upon which the listing was based and discuss how the species
can be recovered.
The use of slides, large maps, handouts, or similar visual aid material
should be considered in the presentation. In particular, maps of any
critical habitats showing precise boundary lines can ensure a better
understanding. Where possible, the boundaries should be submitted for the
meeting record in writing. Do not overwhelm the audience with highly
technical information. Past and current distribution and population sizes
are important to communicate, along with a discussion of known threats and
limiting factors. Discussion should be centered on how the Recovery Plan
addresses these factors. Non-Service employees also can be asked to make
presentations.
Floor Statements. Allow attendees to make statements for the record.
If there is a large attendance and statement time is limited, be sure to
state the ground rules in the beginning of the meeting (e.g., time limit
for oral presentation, no limit on written statement, etc.). Statements
are usually taken in the following order: Federal elected officials; State
and local elected officials; Federal, State, and local agency personnel;
and then others in alphabetical order or order of arrival. Copies of all
statements given at the meeting should be collected after the presentation
OS/2 5/90
111-8
of each statement, and should be retained for the record. The public notice
should clearly state that a copy of the statement should be available at
the start of the meeting, particularly if you anticipate the need to limit
time allotted to oral presentations. (Written copies of oral statements
are not required, but should be encouraged in the public notice). Explain
that written and oral statements are given equal consideration, and that
additional written comment may be submitted for a period of time following
the meeting (give cutoff date and mailing addresses).
The introduction, Service presentations, and public statements should
be part of the record. A court reporter can be employed to prepare a record
of the meeting. Hiring such an individual is reconmiended if the meeting
is expected to be controversial, and doing so will usually provide the
quickest and most accurate record preparation. If a reporter is employed,
an agreement should be obtained for timely delivery (e.g., 2 weeks) of the
record following the meeting. As an alternative, a Service employee can
tape the meeting for later transcription, but this usually is quite
time-consuming. If this latter method is chosen, use a “fool-proof” tape
recording system operated by someone with the appropriate technical
expertise.
Approach meetings in a positive manner and be as cooperative,
informative, and courteous to attendees as possible. Avoid commitments
(e.g., “absolutely, no effect on your project”).
Ouestion and Answer Period. (This is optional and will depend on time
availability and preference of the hearing officer). Allow questions from
the floor and provide answers from Service employees. This can be conducted
on or off the record, and the hearing officer should clearly state which
is the case. The Service prefers this to be on the record unless there is
some compelling reason to the contrary. If attendees wish their questions
to be part of the record, then they should be. Requesting attendees to
fill out cards (printed name, address, affiliation and whether they wish
to make an oral statement) at the door, or to merely sign-in, serves as a
record of total attendance and is recommended.
Do not let this develop into a free-for-all debate; an impartial but
firm meeting officer is a must for a question and answer session.
05/25/90
111-9
RECOVERY PLAN DISTRIBUTION LIST
Technical Draft
1. Send one copy, as appropriate to the following:
Plants -
Dr. Bob Cook
Arnold Arboretum
125 Arborway
Jamaica Plain, Massachusetts 02130
2. Animals (with international distribution)
Lawrence Mason
Office of International Affairs (IA, Mail Stop 860 ARLSQ)
U.S. Fish and Wildlife Service
Washington, D.C. 20240
3. Other knowledgeable individuals, such as taxa and population
special ists.
Technical/Aaencv or A~encv Draft
Same as above, plus the following:
1. Fish and Wildlife Service Washington Offices at the following mail
stops:
Division of Endangered Species (Mail Stop 452 ARLSQ)
Office of Public Affairs (PA, 3447 MIB)
Division of Refuges (Mail Stop 670 ARLSQ)
Office of Research Support (RD-8/ORS, Mail Stop 725 ARLSQ)
Division of Fish Hatcheries (FH, Mail Stop 820 ARLSQ) - Fish species
only
Affected Regional offices
Affected Service field offices
05/25/90
111-10
2. Environmental Protection Agency
Hazard Evaluation Division - EEB (T5769C)
401 M Street, S.W.
Washington, D.C. 20460
3. All cooperating and/or affected agencies and countries. Include a
courtesy copy of the cover letter in Spanish to Mexico (see Memorandum
of Understanding between U.S., Canada, and Mexico, dated April 22,
1988).
Aooroved Plan
Upon signature, immediately send copy of the title page to Division of
Endangered Species.
As soon as possible, send copies to the above addresses (except 3 copies
to the Assistant Director - Fish and Wildlife Enhancement) plus the
following:
1. Department of the Interior Library
- Information on Products Branch (PMO,MS 2258 MIB) - 3 copies
2. National Fish and Wildlife Foundation
Washington (NFWF, 2725 MIB)
3. Fish and Wildlife Reference Service
5430 Grosvenor Lane, Suite 110
Bethesda, Maryland 20814
4. Plants -
International Union for Conservation
of Nature and Natural Resources
Conservation Monitoring Center (KEW)
The Herbarium, Royal Botanic Gardens
Kew, Richmond
Surrey TW9 3AB
ENGLAND, U.K.
5. Animals, except birds -
International Union for Conservation
of Nature and Natural Resources
Species Conservation Monitoring Unit
219C Huntingdon Road
Cambridge CB3 ODL
ENGLAND, U.K.
05/25/90
111—11
6. Birds -
International Council for Bird
219C Huntington Road
Cambridge CB3 ODL
ENGLAND, U.K.
7. Cave species -
National Speleological Society
Cave Avenue
Huntsville, Alabama 35810
Preservation
8. Other Washington Offices of cooperating
as the following:
and/or affected agencies, such
Endangered Species Program Manager
Office of Marine Mammals and Endangered Species
NOAA-National Marine Fisheries Service
1825 Connecticut Avenue
Room 805
Washington, D.C. 20235
Department of the Army (Military)
Natural Resources Program Manager
CEHSC-FN
U.S. Army Engineering & Housing Support Center
Fort Belvoir, VA 22060-5516
Department of the Army (Director of
Environmental Programs Branch
CECW-PP
Pulaski Building
20 Massachusetts Avenue
Washington, D.C. 20314-1000
Civil Works)
Department of the Navy
Natural Resources Program Manager
Navy Facilities Engineering Command
Code 2042
200 Stovall Street
Alexandria, Virginia 22332- 2300
05/25/90
111-12
Marine Corps
Natural Resource Program Manager
HQMC-LFL
Washington, D.C. 20380-0001
Department of the Air Force
Chief, Environmental Division
Engineering and Services Directorate
HQ, Air Force
Bolling Air Force Base
Washington, D.C. 20332-5000
Chief, Division of Project Compliance and Administration
Federal Energy Regulatory Commission
825 North Capitol Street, N.E., Room 308
Washington, p.c. 20426
Director, Office of Environment and Energy
Room 7154, HUD Building
451 Seventh Street, S.W.
Washington, D.C. 20410-3000
U.S. Forest Service
Wildlife and Fisheries, Room 605
Endangered Species Program Manager
P.O. Box 96090
Washington, D.C. 20013-6090
Chief, Wildlife and Vegetation Division (490)
National Park Service
P.O. Box 37127
Washington, D.C. 20410-3000
Fish and Wildlife Resource Specialist
Office of Trust and Economic Development
Bureau of Indian Affairs
Mail Stop 4513-MIB
Interior Building
Washington, D.C. 20240
05/25/90
111-13
Wildlife Management Biologist
Division of Wildlife and Fisheries (BC 240)
Bureau of Land Management
Mail Stop 903-Premier
Washington, D.C. 20240
Director, Office of Environmental Affairs
Bureau of Reclamation
Mail Stop 7518-MIB
Interior Building
Washington, D.C. 20240
Assistant Director - Program Policy
Office of Surface Mining Reclamation and Enforcement
(LSM)
Mail Stop 228-SIB
1951 Constitution Avenue, N.W.
Washington, D.C. 20245
Federal Highway Administration
Office of Environmental Policy
Environmental Analysis Division
400 Seventh Street, S.W., Room 3240
Washington, D.C. 20590
Directorate for Biological, Behavioral,
and Social Sciences
National Science Foundation
1800 G Street, N.W., Room 215
Washington, D.C. 20550
Director, Office of Nuclear Reactor Regulation
U.S. Nuclear Regulation Commission
Washington, D.C. 20555
05/25/90
APPENDIX IV
FISH AND WILDLIFE SERVICE POLICIES RELATING TO RECOVERY
05/25/90
TABLE OF CONTENTS
Captive Propagation or Cultivation
Habitat Protection/Land Acquisition
Hybrids
Relocation of Listed Species
Reintroduction vs. Introduction of listed species
Termination of Recovery Efforts
Experimental Populations
Listing and Recovery Priority Guidelines
National Environmental Policy Act Requirements
Page
IV-1
IV-1
IV-2
IV-2
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IV-1
SERVICE POLICIES RELATING TO RECOVERY
The following discussion briefly summarizes Service policies relevant to
recovery activities. References are provided for people wanting more
information, and these reference documents should be available in each
Regional Office.
1. CaDtive DroDagation or cultivation
Captive propagation/cultivation may be a useful tool to facilitate recovery
of a species in the wild, but it is not a substitute for reestablishment
of viable wild populations. The initiation of significant and costly
captive propagation or cultivation programs may be necessary, but should
be considered only after all other techniques to maintain or improve a
species ‘ status in the wild have failed or are determined as likely to
fail. In the case of listed plants, however, seed banking may be relatively
simple and inexpensive and need not be delayed.
Emphasis should be on preservation of natural habitats, population
management, enforcement of protective regulations, and public education
(See Memo from Director to Regional Director, Region 3, Treatment of
cultivated material of listed plant species, 1/14/86).
2. Habitat Drotection/

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POLICY AND GUIDELINES FOR PLANNING AND COORDINATING RECOVERY OF
ENDANGERED AND THREATENED SPECIES
A guide for planning and coordinating the recovery of endangered and
threatened species, involving the U.S. Fish and Wildlife Service, State
and Federal agencies, and other parties, as required by the Endangered
Species Act of 1973, as amended.
U.S. Department of the Interior
Fish and Wildlife Service
May 1990
05/25/90
POLICY AND GUIDELINES FOR PLANNING AND COORDINATING
RECOVERY OF ENDANGERED AND THREATENED SPECIES:
EXECUTIVE SUP9IARY
These Policy and Guidelines for Planning and Coordinating Recovery of
Endangered and Threatened Species, dated May 1990, revise and supersede
previous guidance on recovery planning. Changes are in response to: (1)
the 1988 Amendments to the Endangered Species Act, (2) the General
Accounting Office’s December 1988 report, Endangered Species Management:
Improvements Could Enhance Recovery Program, and (3) the desire of the
Service to make the guidance more useful and consistent with current policy.
Section I discusses major changes in recovery activities required by the
Endangered Species Act Amendments of 1988. Section II reflects the
Amendments in its discussion of the preparation and processing of Recovery
Plans. Section III includes a discussion of new reporting systems for
tracking expenditures and species status trends, which will set the stage
for the Service to. maintain centralized databases. Service guidance on
Recovery Plan preparation puts new emphasis on developing: (1) measurable
criteria for recovery goals and (2) recovery tasks for which implementation
can be readily tracked. Recovery Plans are expected to more specifically
state what the Service is trying to accomplish through recovery, more
precisely describe the on-the-ground work involved in implementing the
Recovery Plan, and provide estimates of the time and costs needed to achieve
recovery.
05/25/90
TABLE OF CONTENTS
I. INTRODUCTION
A. Background and Context
B. The Endangered Species Act Amendments of 1988
1. Public Review of Recovery Plans
2. Recovery Plan Status Report
3. Monitoring of Recovered Species
4. Section 6 Amendments
5. Annual Reporting of Recovery Expenditures
6. Recovery Plan Requirements
C. Recovery Priority System and Policies .
II. RECOVERY PLAN PREPARATION AND PROCESSING
A. Preliminary Steps and Regional Responsibilities
B. Recovery Plan Processing
C. Summary of Service Responsibilities
III. REPORTING AND TRACKING OF RECOVERY ACCOMPLISHMENTS
A. Species Status Report
B. Species Expenditures Report
C. Recovered Species Status Report
IV. REFERENCES CITED
Page
1
I
2
2
23333
4
5
6
7
10
12
12
13
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V. APPENDICES
Page
APPENDIX I - RECOVERY PLAN FORMAT
- Title/Approval Page 1-1
- Disclaimer Page 1-2
- Literature Citation 1-3
- Acknowledgements Page 1-4
- Executive Summary 1-5
- Recovery Plan Development (Outline) 1-8
APPENDIX II - ORGANIZING THE RECOVERY EFFORT: ROLES AND OPTIONS
- Organizing the Recovery Effort: Personnel Considerations Il-I
- Recovery Team Appointment Letter 11-4
- Recovery Team Responsibilities 11-6
- Recovery Outlines - Memo and Format 11-8
- Lead Regions. for Endangered Species Activities 11-10
- Species Status Report(s) 11-19
APPENDIX III - PUBLIC INVOLVEMENT
- Sample Newspaper Public Notice 111-1
- Sample Press Release 111-2
- Model Federal Register Notice of Plan Availability . . . 111-3
- Sample Technical/Agency Review Draft Transmittal Letter 111-6
- Public Meeting Guidance for Recovery Plan Review . . . 111-7
- Recovery Plan Distribution List 111-9
APPENDIX IV - SERVICE POLICIES RELATING TO RECOVERY
- Captive propagation or cultivation IV-1
- Habitat protection/land acquisition IV-1
- Hybrids IV-2
- Relocation of listed species IV-2
- Reintroduction vs. Introduction of listed species IV-3
- Termination of recovery efforts IV-3
- Experimental populations IV-3
- Listing and Recovery Priority Guidelines . . . . IV-4
- National Environmental Policy Act requirements . IV-14
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I. INTRODUCTION
A. Backaround and Context
Section 4(f) of the Endangered Species Act (Act) of 1973 (16 U.S.C.
1531 et. seq.), as amended, directs the Secretary of the Interior and the
Secretary of Commerce to develop and implement recovery plans for species
of animals and plants listed as endangered or threatened unless such plans
will not promote the conservation of the species. The Fish and Wildlife
Service (Service) and the National Marine Fisheries Service have been
delegated the responsibility of administering the Act. The National Marine
Fisheries Service is generally responsible for most marine species (except
birds), and the Service is generally responsible for birds and terrestrial
and freshwater species. Exceptions include the West Indian• manatee, sea
turtles (on land), and sea otters, which are under the Service’s
jurisdiction.
The Director, Fish and Wildlife Service has delegated the responsibility
for preparing and implementing recovery plans to the Regional Directors.
Decisions involving species that cross Regional boundaries will be
coordinated among appropriate Regional Directors. Although developing
recovery plans is usually appropriate, it is not always needed. The
Regional Director has a choice to make.
These guidelines describe the procedures established by the Service to
implement and coordinate recovery programs for federally listed species
occurring in the United States. The objectives of these guidelines are to:
(1) provide guidance for implementing the Endangered Species Act Amendments
of 1988 and (2) improve the planning process so that substantial effort
can be spent on recovery actions. These guidelines are intended to be used
by Service managers and by prospective authors and reviewers of recovery
plans, whether or not they are employed by the Service or have had previous
exposure to recovery plans.
Recovery is the process by which the decline of an endangered or
threatened species is arrested or reversed, and threats to its survival are
neutralized, so that its long-term survival in nature can be ensured. The
goal of this process is the maintenance of secure, self-sustaining wild
populations of species with the minimum necessary investment of resources.
A recovery plan delineates, justifies, and schedules the research and
management actions necessary to support recovery of a species, including
those that, if successfully undertaken, are likely to permit
reclassification or delisting of the species.
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Coordination among Federal, State, and local agencies, academic
researchers, conservation organizations, private individuals, and major
land users is perhaps the most essential ingredient for the development
and implementation of an effective recovery program. In its role as
coordinator of the recovery process, the Service must emphasize cooperation
and teamwork among all involved parties.
Although recovery plans do not, of themselves, commit manpower or funds,
they are used in setting regional and national funding priorities. They
also justify Service and other Federal agency recovery appropriations to
Congress. Therefore, recovery plans must be as specific as possible in
identifying: (I) recovery goals, (2) recovery tasks, (3) the duration and
cost of recovery actions, and (4) responsible parties and interests.
B. The EndanQered SDecies Act Amendments of 1988
The 1988 Amendments, and their relation to recovery planning and
implementation, are discussed below.
1. Public Review of Recovery Plans
Section 4(f) of the amended Act requires public review of all new or
revised recovery plans prior to approval. The intent is to inform the
public, promote public involvement in the recovery planning process, and
increase the information available to all involved Federal agencies. At a
minimum, the Service will publish a notice in the Federal Register notifying
the public of the availability of a technical/agency draft or agency draft
recovery plan. The notice will open a formal public comment period.
Notices or press releases in newspapers within the range of the species
will also be considered as appropriate. The Regional Director of the lead
Region is responsible for deciding if additional methods, such as public
meetings, are warranted. (See guidance in Section II and Appendix III of
these guidelines.) Any relevant comments received during the public comment
period that require coordination with other agencies in order to address
the issue in the final plan should be forwarded to that agency for
consideration prior to plan approval. Otherwise, any other comments
received may be summarized in the final approved plan.
2. Recovery Plan Status Report
Section 4(f) of the Act was also amended to require the Service to
report every 2 years to Congress on the preparation and implementation of
recovery plans and on the status of each listed species with a recovery
plan. The first report is due in October iggo. The intent is to: (I)
measure progress in developing and implementing recovery plans, and (2)
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provide information on the status of each listed species with a recovery
plan. (See guidance in Section II of these guidelines.)
3. Monitoring of Recovered Species
Section 4(g) of the Endangered Species Act was amended to require a
system for monitoring (for a period of not less than 5 years) all species
that have been recovered and delisted, and to provide for emergency re-listing
of any species that may again become in danger. (See guidance in
Section II of these guidelines.)
4. Section 6 Amendments
Congress recognizes that States bear much of the responsibility for
managing Federally listed species and that the expertise of State
conservation agencies is essential to the endangered species program.
Section 6 of the Act was amended to clarify that States may use Section 6
grants to monitor the status of recovered (delisted) species and Notice of
Review Category 1 and 2 candidate species. However, priorities for Section
6 allocations should be: (1) implementation of recovery actions, (2)
candidate monitoring, and (3) monitorIng of recovered species.
Although monitoring candidate species is not directly related to
recovery, it does provide an opportunity for Federal and State agencies to
conduct prelisting habitat protection and management actions, and ensures
that species awaiting listing are not lost through inattention to their
status.
5. Annual Reporting of Recovery Expenditures
A new section (18) of the Act requires an annual reporting, on a
species-by-species basis, of all “reasonably identifiable” Federal or State
expenditures made primarily for the conservation of endangered or threatened
species pursuant to the Act. The intent of this amendment is to provide
additional cost information to Congress and to examine the distribution of
funds. (Follow guidance in Section II of these guidelines.)
6. Recovery Plan Requirements
In the 1988 amendments, Congress made it clear that a recovery plan is
to be an action-oriented document. There are four issues that must be
addressed in every recovery plan.
o To the maximum extent feasible, a recovery plan must identify
site-specific management actions as may be necessary to achieve
the plan’s goal for the conservation and survival of the
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4
species. Action-oriented tasks designed to achieve specific
recovery goals are appropriate.
o A recovery plan must estimate the time frame required for
accomplishing recovery, assuming that sufficient funds are provided
and in accordance with the schedule In the plan. Estimates of
time to recovery must be based on known biological factors and a
determination of the likelihood that other management programs,
including regulatory and law enforcement programs, might facilitate
or detract from task accomplishment. If they are uncertain, the
nature of the uncertainty must be discussed In the plan. If
unknown, discuss recovery tasks that will make it practical to
outline tasks and time frames in future plan revisions.
o A recovery plan must estimate the cost of complete recovery of the
species. If the estimate is uncertain, the nature of the
uncertainty must be discussed in the plan. In the past, some
recovery plans have given only the Service’s recovery costs.
However, Congress now requires that all recovery plans estimate
the total cost for all Federal and State agencies and private
organizations involved.
o A recovery plan must set forth precise, measurable criteria
and/or identify research needs that will allow the Service
and others to objectively determine when recovery has been
achieved when it is, in fact, achievable.
With this information in the recovery plans, all interested parties
will have a better idea of the funds n3cessary for recovery. These
documents then can be used to support Service budget initiatives.
C. Recovery Priority System and Policies
The Service recognizes the necessity to assign priorities to listing,
delisting, and recovery actions in order to most appropriately use the
limited resources available to implement the Act. The December 1988
General Accounting Office report to Congress criticized the Service for
not following its own priority system and for devoting an inordinate amount
of resources on either high-profile, low priority species or on low priority
tasks for high priority species.
Two priority systems guide species recovery. The first is the Species
Recovery Priority System (See Appendix IV.) This numerical system assigns
species a rank of I to 18 according to the degree of threat, recovery
potential, taxonornic distinctness, and presence of an actual or imminent
05/2 5/90
5
conflict between the species’ conservation and development or other economic
activities (the latter factor doubles the number of levels: lC, 1, 2C, 2,
3C, 3 ...). Each listed species is assigned a priority by the lead Region
at the time of listing. In general, the lower the numerical value, the
greater the likelihood of extinction and the greater the justification for
the Service to expend recovery resources on that species.
The second is the Recovery Task Priority System. In developing a
recovery plan, recovery tasks are assigned numerical priorities of 1, 2,
or 3 according to the relative contribution they may make to species
recovery. (See definitions under Implementation Schedule: Appendix I).
In concept, resources should be allocated first to accomplishing
priority-l recovery tasks for species with a recovery priority number of 1
and last to priority-3 tasks for a species with recovery priority of 18
(lowest priority delineated in the current system). Actual funding
allocations, however, may not follow this formula strictly in all cases.
Some otherwise low priority species that need only one or two low priority
tasks to complete recovery might receive resources to expedite their
downlisting or delisting.
In practice, Congress sometimes mandates that funds be spent on species
or tasks that would otherwise not yet be funded by a strict application of
the two priority systems. Also, a Regional Director must often be flexible
enough to take advantage of special opportunities provided by shifting
social, political, or economic circumstances. Therefore, the two formal
priority systems, used in tandem, serve as a guide rather than a mold to
which all actions must conform. When appropriate, Service managers may
practice the art of management in deft and imaginative ways to get the
greatest conservation benefits for resources expended. Other agencies,
groups, and individuals can and should become involved in the coordinated
recovery effort.
Service policies with direct application to recovery include those on
vertebrate populations, captive propagation or cultivation, land
acquisition, hybrids, reintroduction, experimental populations, and
termination of recovery. These policies are described in Appendix IV.
Plan preparers should be familiar with these policies to ensure consistency
of the recovery plan tasks they write.
II. RECOVERY PLAN PREPARATION AND PROCESSING
The method to be used for plan preparation Is based on several factors,
including the range (limited vs. extensive), or ecosystem (simple vs.
complex), of the species, the complexity of the recovery actions
05/25/90
6
contemplated, the number of organizations responsible for the implementation
of the recovery tasks, the cooperation of private landowners, the
availability and expertise of personnel, and the availability of funds.
Lead Regions for endangered species activities have been identified to
guide coordination of listing and recovery assignments. A discussion of
the concept and Regional responsibilities is found in Appendix II. Some
recovery plans are prepared by Service biologists. The Service also may
use outside expertise in the form of recovery teams, other Federal agencies,
State personnel, private conservation organizations, or private contractors
in the development and implementation of recovery plans. A detailed
discussion of the options available for recovery plan preparation and the
roles of prospective participants is found in Appendix II.
The Service need not prepare National Environmental Policy Act (NEPA)
documents on the lead Regional Director’s decision to prepare a recovery
plan. Recovery plan development is categorically excluded from complying
with NEPA based on the consultative and technical assistance nature of
recovery planning. However, implementation of a specific task in a plan
may require NEPA compliance if that task constitutes a major federal action.
(See Memo from the Director to the Regional Directors, •NEPA Categorical
Exclusion for Recovery Plans,” dated 11/5/86, in Appendix IV.)
A. Preliminary SteDs and Regional ResDonsibilities
The recovery planning process begins when or just before a species is
listed. Some management actions may have occurred prior to listing a
species in an effort to begin reversing its decline or minimizing the
threats to its existence. If the species was previously a candidate, some
management actions may have already taken place. The Regional Director
responsible for preparation of the original listing package is normally
designated the lead for preparing and signing the recovery plan, unless
the affected Regional Directors agree otherwise. The Director reserves
the right to approve recovery plans of national significance.
A lead Regional Director is required to submit a recovery outline to
the Director within 60 days of the final listing rule publication briefly
explaining the actions the Region intends to take. This is a one-page
document in which the Regional Director indicates the species recovery
priority number, whether or not a recovery plan will be prepared, the
estimated date of its completion, whether or not a recovery team will be
appointed, and what immediate or major recovery actions are anticipated.
(See Memo from the Director and Recovery Outline format in Appendix II.)
For a species found in more than one Region, the designated lead Region
will determine the method of plan preparation and coordinate recovery plan
OS/2
7
development and implementation in cooperation with other affected Regions.
Regions are encouraged to develop multi-species recovery plans for listed
species that share the same ecosystem or for taxonomically related species
facing similar threats. In some instances, it may be advantageous to
develop separate plans for each major population of a widespread species
(e.g., the bald eagle). —
B. Recovery Plan Processino
Following regional review, the Regional Director may opt to produce a
technical draft for review by the professional community (e.g. academic,
law enforcement, other Federal contacts, etc.). This draft need not include
an Implementation Schedule. Comments received are incorporated into a
subsequent agency draft, which is made available for review by all
interested agencies and parties (including the general public).
Alternatively, the Regional Director may choose to produce a combined
technical/agency draft, to be reviewed simultaneously by all interested
parties. The latter approach is recommended because it saves time, effort,
and money; however, the decision on whether to have separate drafts or one
combined draft belongs to the lead Regional Director.
Once the agency (or technical/agency) draft or a significant revision
to a previously approved plan is prepared, the following actions will be
taken to comply with the 1988 Amendments:
1) The lead Region will distribute this draft to the Assistant Director
- Fish and Wildlife Enhancement (ADFWE), the Assistant Director -
Refuges and Wildlife (ARW), the Assistant Director - Fisheries (AF),
the Regional Director for Research and Development, other affected
Regions, all affected Service field offices, cooperating agencies,
species experts, and other interested and/or affected public or
private parties. Comments will be transmitted to the lead Region
within 60 days.
2) The lead Region will prepare a Notice of Availability for
publication in the Federal Register requesting public comments
within a specified time. The lead Region also may develop a public
notice and/or press release to be published in, or provided to,
local newspapers in each major geographical area where the species
is known or believed to occur (See Appendix III for examples of
such documents.) The lead Region will absorb the cost of press
releases and other forms of public notification.
3) The Federal Register notice, press releases, and/or public notices
should be published at the same time. However, the Regional
OS/25/90
8
Director may, as a courtesy, distribute the technical/agency draft
or agency draft to cooperating agencies and other affected parties
shortly before the general public is invited to review and comment
on the draft. This advance distribution is appropriate if the
Regional Director wishes to allow cooperating agencies and other
affected parties some lead time to deal more effectively with
inquiries from the general public.
4) The Regional Director of the lead Region will decide whether or
not to hold public meetings on the draft recovery plan. If a public
meeting is to be held in a Region other than the lead Region, that
Regional Director is responsible for organizing and holding the
meeting but should do so in close cooperation with the lead Region.
(See Appendix III for further guidance on public meetings.)
Public comments must be sent to the lead Region for consideration
prior to approval of the plan. The lead Region decides whether to address
the comments and the Service’s response in, or separately from, the
recovery plan. The Region has substantial discretion in this area. If
only a few comments are received, It may be simple to append them to the
approved recovery plan. However, numerous comments could be very unwieldy,
and the Region may choose to merely summarize the comments. The Service’s
administrative record must show that all comments received during the public
comment period have been considered and, if not addressed individually,
addressed in summary form. Since the 1988 Amendments also require other
affected Federal agencies to consider public comments, the lead Region
must provide copies of all comments to appropriate agencies for
consideration, prior to their address in the approved recovery plan.
Comments can be accepted at any time during recovery plan preparation.
Those received outside the designated public comment period need not be
addressed in a formal fashion, but the Service and cooperating agencies
are free to use any significant information so provided.
A recovery plan is considered Approved” only after being signed by the
lead Regional Director or Director. After approval, the plan is reproduced
by the Regional Office and distributed. The distribution list is found in
Appendix III. A copy of the signed approval page must be sent to the
Director (ATTN: FWE/DES) within 15 days after the approval.
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9
An approved plan should be reviewed periodically to determine if updates
or revisions are needed. Changes in an approved plan will be processed in
the following manner:
o Uodate - This involves changes in the Implementation Schedule or other
minor revisions (e.g., Identification of recovery tasks that have been
initiated since the last printing and are either ongoing or have been
completed). Tasks that have been completed should be indicated as such in
the comments column of the Implementation Schedule, along with actual costs
(for example, “complete FY 1989” or “ongoing 520K FY 1989 with Section 6
funds”). The Division of Endangered Species (DES) will be informed of an
Update by the Species Recovery Status Report that will be sent to ADFWE
on an annual basis (see Section III and Appendix I). Copies of the updated
pages should be forwarded to cooperators. No public review and comment is
required for updates, but the lead Regional Director may choose to solicit
such comment.
o Revision - This involves substantially rewriting some portion(s) of the
plan. A revision is necessary when significant changes are needed in Parts
I or II, and/or when major conceptual changes are required. Existing
approved plans need not be revised merely for reformatting to these
guidelines; however, when a revision is undertaken, the opportunity to
conform the plan should be taken.
In some cases revisions or updates can be handled by replacing whole
pages in the original plan with new versions. Such pages should be dated
to indicate the time of revision/update.
Significant revisions of approved plans require a review with public
involvement. The Region that prepared the original recovery plan is
responsible for preparing the revised recovery plan, unless the affected
Regions agree otherwise or the Director provides other instructions.
All updates and revisions should be carefully analyzed to ensure that
the task priorities are valid. As in an original plan, the narrative
description in Part II for any priority 1 task in a revised plan should
include explanation of why the action is necessary to prevent extinction.
A revised recovery plan must be identified as such on the title sheet and
cover along with the date of the original approved recovery plan and the
revision.
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C. Summary of Service ResDonsibilities
The Regional Director has the responsibility to:
1. Provide a Recovery Outline (see format In Appendix II) for any listed
species for which the Region has lead responsibility to the Director
within 60 days subsequent to publication of the final rule listing a
species.
2. Prepare and approve all recovery plans for which the Region prepared
the original listing package unless the affected Regions agree
otherwise. These plans will generally be for species that occur solely
or largely within the affected Region. The Director retains the
discretion to approve any plan or to delegate approval to the
responsible Region.
3. Take emergency actions, with appropriate permits, necessary for the
protection of any listed species regardless of plan status or task
priority.
4. Establish recovery teams, if appropriate, to develop the recovery plan
or oversee its implementation.
5. Modify or terminate recovery teams and their activities.
6. Appoint, remove, and replace recovery team members as appropriate
(Under special circumstances, the Regional Director may wish to have the
Director announce these actions.)
7. Inform the appropriate Public Affairs Office of actions conducted under
the above items 4, 5, and 6.
8. Assist those preparing plans by providing technical, advisory, fiscal,
and other assistance as needed.
9. Complete the Implementation Schedule, Part III. (This may be done
instead by the plan preparer, at the discretion of the Regional
Director.)
10. Review all drafts of the recovery plan and accept, modify, or return
them to the preparer for further modification. Distribute drafts for
review and comment in accordance with Appendix III.
11. Arrange for the publication of a Federal Reaister notice informing
the public of an opportunity to review the recovery plan and provide
comments.
05/25/90
11
12. Distribute a press release and/or publish (in a newspaper of local
distribution) a public notice of availability of the agency or
technical/agency draft of new or revised recovery plans and the
opportunity to comment, hold public meetings on recovery plans as the
Regional Director finds necessary, and address any significant public
comments associated with the recovery plan. The lead Region is
responsible for bearing the costs of publishing Notice(s) outside Its
region.
13. Print and disseminate approved plans to the appropriate parties listed
in Appendix III. Printing of plans will be accomplished within 90
days after approval; distribution within 120 days, subject to
availability of funds (See Appendix III).
14. Immediately upon printing, provide three copies of each new or revised
Recovery Plan to the Director through the Assistant Director - Fish
and Wildlife Enhancement.
15. Periodically review each recovery plan, and update and revise as
required.
16. Notify appropriate Federal agencies, in writing, of the statutory
requirement that they consider all information presented during the
public comment period and provide copies of such comments to those
agencies prior to approval and implementation of new or revised plans.
17. Direct and coordinate recovery plan implementation.
18. Develop budget proposals to implement recovery plans and prepare Annual
Work Activity Guidance for current year funding.
19. Review progress of plan implementation and report on accomplishments
and progress of species’ recovery (including recovered species) as
requested by the Director.
20. Terminate recovery efforts once plan objectives have been
accomplished. The Regional Director may continue management actions
even after a recovery plan’s objectives have been met.
21. Recommend delisting or reclassification of listed species as
appropriate.
22. Inform all cooperators of modifications in the plan and other actions,
including emergencies, problems, needs, progress, etc.
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12
The Region 9 Division of Endangered Species has the responsibility to:
1. Provide guidelines and training on National policy, new legal
requirements, and the preparation of plans through written materials and
workshops.
2. Review, evaluate, and provide conunents on the technical/agency or agency
drafts of new or revised plans regarding adherence to the recovery
guidelines and other Fish and Wildlife Service policies.
3. Compile Regional reports on recovery implementation progress, species
status (including status of recovered species), and status of draft,
revised, or approved recovery plans for Director’s submission to
Congress.
III. REPORTING AND TRACKING OF RECOVERY ACCOMPLISIHENTS
A recovery plan benefits a species only if it is imolemented. As a
general rule, one person in the lead Region should be assigned the oversight
of each recovery plan. This individual should be responsible for
coordination with all parties participating in the species recovery efforts
and for preparing species-specific input for any required reports.
Three report requirements exist to ensure compliance with the Endangered
Species Act. These include: (1) Species Status Report (biennIal), (2)
Recovery Expenditures Report (annual), and (3) Recovered Species Status
Report (annual). ADFWE will Drovide sDecific requirements for each reDort
to the Regions. alona with any chanoes. each fl~..j.j~Dort is required
.
These reports serve as the basis for a system to track recovery progress and
expenditures. The following guidance should be followed within each Region.
A. SDecies Status ReDort
The Service is required, by Congress, to report every two years to
the Committee on Environment and Public Works of the Senate and the
Committee on Merchant Marine and Fisheries of the House of Representatives
on the status of efforts to develop and implement recovery plans for all
species listed pursuant to Section 4 of the Act and on the status of all
species for which such plans have been developed. The status of each listed
species will be tracked using a centralized database (developed by the
Region 9 Division of Endangered Species (DES)). Beginning in Fiscal Year
1990, each Region is responsible for sending to the ADFWE, on an biennial
basis, a Species Status Report (Parts I, II, and III) on each listed species
for which it has lead responsibility (See format, Appendix II). This Status
Report will include a tabular report (Parts I and II) and individual species
05/25/90
13
summary status reports (Part III). The species summary status will be no
longer than one page. It will include a one-line statement regarding the
current status of the species based on information readily available to
the staff. A species’ status will be categorized as: Improving
(Increasing), Stable, Declining, Unknown, or Extinct. The summary should
compare the species’ current status with its condition at the previous
status review. The report should also describe the recovery actions that
have been implemented and/or completed during the previous year (including
consultations, incidental take authorizations, law enforcement activities,
etc). The purpose of this report is to track the status of each species
and the implementation of recovery plans, as required by Congress.
B. SDecies ExDenditures ReDort
On or before January 15, 1990 and each January 15 thereafter, the
Service, in accordance with Section 18 of the Act, will submit to Congress
an annual report covering the preceding fiscal year which provides an
accounting on a species by species basis of all reasonably identifiable
Federal and State expenditures made primarily for the conservation of
endangered and threatened species pursuant to the Act. DES will develop
a list of reasonably identifiable categories (by species or cluster of
species), such as listing, recovery, consultation, research and development,
acquisition, law enforcement, and Section 6 grants, for the Regions to use
in reporting on species expenditures. In addition, DES will develop a
simple reporting system for use in identifying expenditures of other Federal
agencies and States. The Regions are required to provide ADFWE with an
annual expenditure report in advance of the required date for submission
to Congress. Coordination through the International Association of Fish
and Wildlife Agencies for State expenditures will be accomplished by DES.
The Director will then provide Congress with a nationwide Recovery
Expenditures Report by January 15th of each year.
C. Recovered SDecies Status ReDort
For at least five years after delisting, the Service is required to
implement a system in cooperation with the States to monitor the status of
all species which have recovered to the point at which the measures provided
pursuant to the Act are no longer necessary. The Lead Regions must provide
ADFWE with an annual Recovered Species Status Report for each recovered and
delisted species, describing the monitoring methods used and the results of
the previous fiscal year’s monitoring efforts by October 31st of each year.
OS/2 5/90
14
IV. REFERENCES:
General Accounting Office. 1979. Endangered Species - A Controversial
Issue Needing Resolution. Washington, D.C.
General Accounting Office. 1988. Endangered Species - Management
Improvements Could Enhance Recovery Program. Washington, D.C.
Lande, Russell. 1988. Genetics and Demography in Biological Conservation.
Science 24(1):1455-1460.
Shaffer, Mark L. 1981. Minimum Population Sizes for Species Conservation,
Bioscience 43(2):131-134.
U.S. Fish and Wildlife Service. 1973.
Wildlife Management and Research.
Washington, D.C.
Tactical Planning in Fish and
Resource Publication 123.
U.S. Fish and
pp. i-iv.
Washington,
Wildlife Service. 1980.
In: Endangered Species
D.C.
Appendix I. Priority System.
Program Management Document.
U.S. Fish and Wildlife Service.
ranking candidate species.
6(8):1.
1981. Service prepares guidelines for
Endangered Species Technical Bulletin
U.S. Fish and Wildlife Service. 1983. Endangered and
Listing and Recovery Priority Guidelines. Federal
48(184):43098 and 51985.
U.S. Fish and Wildlife Service.
Division, Federal Building,
Threatened Species
Register,
1988. Recovery 2000. Endangered Species
Fort Snelling, Twin Cities, Minnesota.
05/25/90
APPENDIX I
RECOVERY PLAN FOI~IAT
05/2 5/90
TABLE OF CONTENTS
Title/Approval Page
Disclaimer Page
Literature Citation
Acknowledgements Page
Executive Summary
Recovery Plan Development (Outline)
Introduction
Recovery
Implementation Schedule . .
Sample Definitions and Acronyms
Appendix
Page
1—1
1-2
1-3
1-4
I-S
1-8
‘-9
I—li
1-13
1-19
1-20
Page
05/25/90
I-i
RECOVERY PLAN FORMAT
Title/Approval Page
Should be in the following general format:
(Technical, Technical/Agency, or Agency Draft - as appropriate)
SPECIES X
(Revised, Second Revision, etc.)*
RECOVERY PLAN
(Original Approved: October 1, 1976)~
(First Revision Approved, etc.)*
Prepared by the Species X Recovery Team
John Doe, Leader
U.S. Fish and Wildlife Service
Region 1
Portland, Oregon
Jim Johnson**
Oregon Wildlife Commission
Forest Grove, Oregon
Mary Smith
Cornell University
Ithaca, New York
for
Region I
U.S. Fish and Wildlife Service
Portland, Oregon
Approved:
Regional Director, U.S. Fish and Wildlife Service
Date:
(Include date, but not signature line on drafts)
*Include this line if the approval page is for a revision.
** If more names than space exists, list all members on a page following.
05/25/90
1-2
DISCLAIMER PAGE*
Recovery plans delineate reasonable actions which are believed to be
required to recover and/or protect listed species. Plans are published by
the U.S. Fish and Wildlife Service, sometimes prepared with the assistance
of recovery teams, contractors, State agencies, and others. Objectives
will be attained and any necessary funds made available subject to budgetary
and other constraints affecting the parties involved, as well as the need
to address other priorities. Recovery plans do not necessarily represent
the views nor the official positions or approval of any individuals or
agencies involved in the plan formulation, other than the U.S. Fish and
Wildlife Service. They represent the official position of the U.S. Fish
and Wildlife Service ~nJyafter they have been signed by the Regional
Director or Director as aporoved. Approved recovery plans are subject to
modification as dictated by new findings, changes in species status, and
the completion of recovery tasks.
* Can indicate uncertainty of costs of cost estimates identified for task
implementation and/or time estimates for achievement of recovery, if
applicable, in the Disclaimer.
05/2 5/90
1-3
LITERATURE CITATIONS
Literature Citations should read as follows:
U.S. Fish and Wildlife Service. 19 . _________ Recovery Plan. City,
State. __ pp.
Additional copies may be purchased from:
Fish and Wildlife Reference Service:
5430 Grosvenor Lane, Suite 110
Bethesda, Maryland 20814
301/492-6403
or
1 -800-582-3421
The fee for the Plan varies depending on the number of pages of the Plan.
05/25/90
1-4
ACKNOWLEDGEMENTS PAGE
Acknowledgments Page (Optional)
The inclusion of an Acknowledgments page is at the discretion of the
Region responsible for preparing the plan. If included, it should recognize
individuals that contributed significant information/assistance during
plan preparation.
05/25/90
I-S
EXECUTIVE SUI9iARY
The Executive Summary should not exceed 1 single-spaced page. Arrange
to print extra copies of the Executive Summary for distribution to
interested parties. It should include:
Current Species Status: Status, population level/distribution (if
known), and vulnerability to threats. (Let the reader know up front the
condition of the species.)
Habitat Repuirements and Limiting Factors: List any specialized habitat
requirements and major threats to be addressed under Actions Needed.
Recovery Obiective: Choose among delisting, downlisting, or protection
of existing populations for a specific time period or for the foreseeable
future. Be ambitious, but do not set an unobtainable objective (obtained
from Part II of the recovery plan).
Recovery Criteria: Indicate the number and arrangement of viable
populations, protection and management procedures needed, and what threats
should be resolved.. Only by being specific in terms of numbers,
distribution, amount of habitat, level of protection/enforcement, etc.,
will the Service and the public be able to assess progress toward the
recovery objective.
Actions Needed: Present a numbered list of the major steps needed to
satisfy recovery criteria or at least make a significant improvement in
species status.
Total Estimated Cost of Recovery: A cost table may be provided as
follows. The bottom right-hand figure should reflect the total estimated
cost of recovery (e.g. consultations, permits, law enforcement activities,
land management activities, personnel requirements, etc). Costs may be
summarized if more applicable.
Year Need I Need 2 Need 3 Total
1990 $ $ $ $
1991 $ $ $ $
1992 $ $ $ $
Total $ $ $
Date of Recovery: Indicate the anticipated year objectives will be
completed. This may or may not be the last year listed in the above cost
table.
(See attached example(s), pages 6 and 7.)
I
0 5/25/90
1-6
EXECUTIVE SUMMARY OF THE RECOVERY PLAN FOR THE OZARK CAVEFISH
Current Status: This species is listed as threatened. Fourteen populations
are known from the three states of Missouri (1), Oklahoma (3) and
Arkansas (4). Historically, the species occurred in 24 caves of the same
region.
Habitat Requirements and Limitina Factors: The Ozark cavefish inhabits
cave streams of the Springfield Plateau in southwest Missouri, northeast
Oklahoma and northern Arkansas. Habitat loss and decreasing water quality,
due to urbanization, are the principal threats. Declining bat populations,
which provide an energy source to the caves, and normal low reproductive
rates of the cavefish also threaten the species’ survival.
Recovery Obiective: Delisting.
Recovery Criteria: To establish and/or maintain viable populations of the
Ozark at twelve locations.
Actions Needed
:
1. Monitor existing and experimental populations.
2. Establish five new populations and augment selected existing
populations.
3. Determine recharge zones for caves of existing and experimental
populations.
4. Develop and implement protection of recharge zones for each site of
existing and experimental populations.
5. Eliminate threats/habitat degradation through a combination of
consultation/permitting/cooperative programs.
Costs ($000’s):
Year Need 1 Need 2 Need 3 Need 4 Total
1990 3.0 .0 15.0 5.0 23.0
1991 3.0 60.0 10.0 5.0 78.0
1992 3.0 20.0 .0 5.0 28.0
1993 3.0 20.0 .0 5.0 28.0
1994 3.0 20.0 .0 5.0 28.0
1995 3.0 20.0 .0 .0 23.0
1996 3.0 20.0 .0 .0 23.0
1997 3.0 20.0 .0 .0 23.0
1998 3.0 20.0 .0 .0 23.0
1999 3.0 .0 .0 .0 3.0
2000 3.0 .0 .0 .0 3.0
Total Cost
of Recovery 33.0 220.0 25.0 25.0 283.0
Date of Recovery: Delisting should be initiated in 2000, if recovery
criteria are met.
05/25/90
I-i
EXECUTIVE SUMMARY OF THE RECOVERY PLAN FOR FASSETT’S LOCOWEED
Current Status: This species is listed as threatened. During a 1988
survey, Fassett’s locoweed has been relocated at four of eight historical
stations. Three of the sites are currently on the market or were recently
sold to new private owners. Only eight plants were found at the fourth
station, which is a highly developed lake shoreline.
Habitat Requirements and Limitina Factors: None of the four known sites
of Fassett’s locoweed are In protected ownership. Shoreline development
is the largest threat to the species. Plants are located on sandy
shorelines of land-locked seepage lakes where water levels fluctuate
regularly in response to rainfall patterns. The species may depend upon a
persistent seed bank to survive during periods of high water, then
germinating soon after a shoreline is exposed during low levels.
Recovery Objective: Delisting
Recovery Criteria: Protect and maintain ten separate and self-sustaining
populations of Fassett’s locoweed. These should include all known extant
colonies as well as introduced populations. Introduced colonies will not
be considered successfully established until after a lapse of fifteen years.
Actions Needed
:
1. Survey suitable habitat for additional populations, and acquire known
populations.
2. Monitor existing populations.
3. Conduct research on the biology of the species.
4. Establish new populations of Fassett’s locoweed.
5. Investigate and conduct necessary management activities
sites.
Costs (000’s):
Year Need I Need 2
1990 0.0 2.5
1991 20.0 2.5
1992 20.0 2.5
1993 20.0 2.5
1994 20.0 2.5
1995 50.0 2.5
1996 0.0 2.5
1997 0.0 2.5
1998 0.0 2.5
1999 0.0 2.5
2000 0.0 2.5
Recovery Cost 130.0 27.5
Date of Recovery: Delisting should be
criteria have been met.
Need 3
2.0
0.0
2.0
0.0
2.0
0.0
2.0
0.0
2.0
0.0
0.0
10.0
initiated
Need 4
5.0
5.0
5.0
.0
.0
.0
.0
.0
.0
.0
.0
15.0
in 2007,
at all key
Need 5
1.5
1.5
11.5
11.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
36.5
if recovery
Total
11.0
29.0
41.0
34.0
26.0
54.0
6.0
4.0
6.0
4.0
4.0
219.0
OS/25/90
1-8
RECOVERY PLAN DEVELOPMENT
OUTLINE
A Table of Contents should follow the Executive Summary and include:
I. Introduction
(List major headings)
II. Recovery
A. Objective
B. Narrative Outline for Recovery Actions Addressing Threats
C. Literature Cited
III. Implementation Schedule
IV. Appendix
(Individual appendix numbers may be listed
complicated plans).
for lengthy or
If the plan contains separate outlines for different populations or
management units then required to serve as the basis of jeopardy/adverse
modification determinations, then these major divisions should be included
in the Table of Contents, Sections II and III above.
05/25/90
1-9
In all narrative sections of the plan, avoid using “boiler-plate”
language or copying parts of other plans. Tailor each plan to the needs
of the individual species. When writing the plan, keep in mind those
subsections that will likely require changes in future revisions so that
they can be handled most efficiently (e.g. by whole page replacement).
I. INTRODUCTION
This section of the recovery plan serves several important purposes.
First, it acquaints the reader with the species, its status, and the threats
it faces. Second, because it is a source document for land managers,
economic interests, and other interested individuals, it should touch on
all relevant information. This does not mean that the Introduction should
be a dissertation on the species; rather it should be more of a review or
summary document. No topic should be covered in tremendous depth, but
all major aspects of the species’ biology should be mentioned, with
appropriate citations for further information. When dealing with less
known species, particularly invertebrates and plants, a few-word description
of its class/family affinities would provide a reference point for the
non-taxonomist. All major publications on the species should be referenced
in the LITERATURE CITED or REFERENCE section. Third, the introduction
will serve as an information source for the interested, but busy,
decisionmaker. It should therefore be arranged so that the information it
contains is quickly and easily accessible.
The following subsections for the Introduction may be adapted to suit the
biology of the species; however, keep in mind that the busy decisionmaker
will be thankful if the answers to obvious questions can be found by
glancing at the Table of Contents and flipping to an appropriate page.
A. Descriotion - Give the date listed and Federal Register citation
for the final rule. The description should not be extremely
technical. Note when the species was described and refer to the
best available technical descriptions. You may wish to mention
“look-alike” species and note how to differentiate, but the detail
should be more on the level of a field guide than a taxonomic
treatise. For reference, provide the recovery priority for this
species/group/ecosystem assemblage.
B. Distribution - Give historical and currently occupied range.
Include a map of appropriate scale to delineate these generally
without disclosing site-specific information. Be sure the map has
adequate margins to allow for binding and will reproduce clearly.
If appropriate, state the number of known populations (or centers
of distribution) and counties of occurrence. This subsection is
one that will likely require periodic updating.
05/25/90
1-10
C. Habitat/Ecosystem - This may be a separate subheading or, if little
information is available, may be combined with subsection D.
Include relevant information, such as soil type (particularly for
plants), plant or community associations (do not include an
exhaustive species list), elevation, requirements for water quality,
flow regimes, etc. Describe critical elements of the species
ecosystem that should be considered by persons proposing activities
that may affect the species or its recovery. Such elements may
include sensitive life stages, symbiotic relationships, cover,
food, the effects of actions favoring competitors, predators, etc.
This section should be in a format that lends itself to use in
information sheets developed for Section 7 consultations, Habitat
Conservation Plan(s) developments, or other management programs of
major public interest. If known, describe the tolerance of the
species to take of individuals or changes In essential elements of
its habitat for use in determining Incidental take. [Theproposal
has been made that discrete recovery populations or units of
critical habitat be the basis for determinations of effect during
Section 7 consultations. If that suggestion is adopted, these
guidelines will be further refined to reflect additional data
needs].
D. Life History/Ecology - Include what is known about phenology,
pollinators, dispersal, etc. (for plants), breeding habits, litter
or clutch size, diet, behavior, etc. (for animals). As in all
previous sections, try to focus on brevity without sacrificing
thoroughness and be sure to cite relevant literature.
E. Reasons for Listing - This will include an overview of the species’
decline (if appropriate) and the threats it faces. A description
of the current land management practices that are affecting or may
affect the species should be included, as they may have a direct
bearing on decisions regarding the recovery and management of listed
species. The description would also give a historical perspective
to future management issues or conflicts. Do not repeat information
presented in other sections. The intent here is to provide a
framework for the reader to understand the tasks specified in
Section II. The “Factors Affecting the Species” section of the
listing rule is a good starting point for this subsection.
F. Conservation Measures - For some species, conservation/recovery
efforts have been ongoing or will be initiated prior to approval of
the recovery plan. Any such activities should be mentioned here.
This subsection is the one that will most likely require updating
in future revisions.
G. Strateav of Recovery - This is to provide the reader with a
chronological overview of the species ecosystem restoration and
maintenance recovery actions. A sentence or two should be
05/25/90
1—11
included about all Priority 1 tasks identified in Section II, and
major Priority 2 tasks may be mentioned. This section may be
omitted from very simple plans, where the overview can be gleaned
from the Executive Summary or directly from the Narrative Outline.
II. RECOVERY
A. Obiective and Criteria
State the primary objective of the plan. State the recovery criteria
In quantitative terms (e.g., number of individuals or populations) whenever
possible. If the recovery objective includes removal of the species from
endangered status, make it clear whether this means reclassification to
threatened status or complete delisting. If the prospect of
reclassification is uncertain, a measurable interim objective may be used.
The 1988 amendments to the Act require an estimate of the recovery time,
which should also be stated in this section and should be based on the
assumption that recovery tasks will be implemented as scheduled and that a
determination has been made of the probable effect of anticipated human
activities on that schedule. The recovery objective and criteria may read
as follows:
“SDecies Y” will be considered for reclassification from
endangered to threatened when X geographically distinct, self-sustaining
populations are protected in ~ county(ies) of ~..t.iti..Y
(or in any other counties where native populations might be
discovered in the future) and they have been maintained for 1
consecutive years. Delisting the species will be considered
when X+ geographically distinct, self-sustaining populations are
protected in X counties for another Z consecutive years following
reclassification. The estimated date for recovery completion is
2010.
The brevity and apparent simplicity of the recovery objective section
is quite deceptive. Quantifying recovery criteria calls for creative
thought, and developing the criteria may require educated guesswork. This
may be difficult for scientists accustomed to basing their statements on
hard data rather than conjecture. However, plan authors should keep in
mind that concise and measurable recovery criteria are necessary; they
represent the central pillar of the recovery plan. Only explicit,
measurable goals will bring the overall recovery effort into focus and
promote the necessary funding. If the objective section includes such
terms as protected, stable or increasing populations, these should be
operationally defined, in light of such factors as generation time and
other relevant factors.
05/25/90
1-12
Population viability analysis concepts may prove useful in developing
recovery objectives and criteria. Studies to determine probable population
viability, and the optimum number and spatial arrangement of populations,
may be specified as tasks in the plan.
Although determining the appropriate spatial arrangement and number of
populations might require further research, some preliminary targets should
be identified. Populations should be defined and located so that a single
event, however catastrophic, would be unlikely to eliminate more than one
population. Delisting would generally require more viable populations
than would be required for downllsting. It might not be necessary for
recovery criteria to match any historical population level, if a lower
level will ensure the long-term survival of the species as a natural
component of its ecosystem. There may be cases where not enough habitat
remains to support a population that meets viability criteria. In these
cases, full recovery is clearly not achievable, and the plan should clearly
state why delisting is not a practical objective. In some cases,
evaluating the ability of the ecosystem to support viable populations can
be a recovery task.
All plans should state that the reclassification criteria are
preliminary, and that they may be revised on the basis of new information
(including research specified as recovery tasks).
B. Narrative Outline for Recovery Actions Addressing Threats
This section should be concise and action-oriented. Actions not known
to be required for recovery, even though possibly beneficial, may be
included. Though most of the tasks included in the outline should be those
that are expected to be carried out in the near future, all tasks necessary
to achieve full recovery of the species should be identified. Limiting
the Narrative Outline to tasks that are expected to be carried out in the
near future will sacrifice long-term planning for short-term goals and
will not give an accurate assessment of what is necessary to achieve the
stated recovery objective. If all tasks known are outlined, time frames
can be set as “to be determined” if they are dependent on the outcome of
earlier planned tasks.
A stepdown outline is not required; however, plan preparers should be
familiar with the stepdown process because it may be a useful tool in task
definition. Regional Directors may include stepdown outlines in plans at
their discretion.
The narrative outline should step down recovery needs as far as Is
necessary to reach the task level. Tasks are items that can be funded or
permitted independently. For example, under “Gather life history
information on Species X,” do not list “Study diet” and “Study social
05/25/90
1-13
interactions” as separate tasks unless you anticipate that separately funded
studies should be conducted. Use judgment in deciding how finely to slice
the tasks. In some instances, one aspect of life history may be of higher
priority than other aspects and should be designated as a separate task.
Any task receivina a Priority I desionation in the Imolementation Schedule
must be justified in the Narrative Outline as necessary to orevent
extinction
.
In the narrative, discuss the uncertainty surrounding cost estimates
that might prove inaccurate or imprecise. Indicate the degree of confidence
in the estimates, including costs associated with developing and
implementing conditions of Section 7 consultation biological opinions and
Section 10 Habitat Conservation Plans. Estimates should be in current
dollars; do not attempt to adjust for inflation. Estimates from other
agencies need to be similarly documented. (Note that Congress may fund
other Federal agencies based, in part, on these estimates. It will greatly
benefit other agencies’ budget requests if they can say “.... as indicated
in the Recovery Plan for the species.”)
Specifically identify in this section any recommendation for the
protection of habitat that is essential to the species. Describe its extent
and location (provided this specificity would not increase the risk of
take). Available options for land protection (e.g., fee purchase, easement,
etc.) should be considered as options. Essential habitat need not be
limited to currently occupied habitat or currently suitable habitat if it
is deemed important for eventual recovery of the species. (Note that any
habitat to be acquired by a Federal agency for endangered species must be
identified, at least in general area description, in the recovery plan
before the Administration will submit the request to Congress. As a very
minimum, land acquisition must be identified as a requirement for recovery.)
The Narrative Outline should include a set of “Strategies” that will,
when applied to the known threats, result in achievement of the recovery
objective. It is important to consider all strategies that may alleviate
known threats, such as research on disease, habitat protection, protection
from taking, captive propagation, reintroduction, control of competing
species, etc.
C. Literature Cited/References
All citations from Part I and II should be listed here. The AIBS style
manual presents the proper format for citations. This section should
reference all source documents for the Plan, but it need not be a complete
bibliography.
05/25/90
1-14
III. IMPLEIIENTATION SCHEDULE
This is a very important section of the recovery plan. It will be
used to secure and obligate funds, establish associated regulatory and
other management priorities, and will provide the basis for tracking plan
implementation. The Implementation Schedule should be preceded by a page
defining task priorities and acronyms used in the schedule. Several regions
have found an introduction to the Implementation Schedule, like the one
below, useful to the readers of Recovery Plans:
“The Implementation Schedule that follows outlines actions and estimated
costs for the recovery program. It is a guide for meeting the objective
discussed in Part II of this Plan. This schedule indicates task
priorities, task numbers, task descriptions, duration of tasks, the
responsible agencies, and lastly, estimated costs. These actions,
when accomplished, should bring about the recovery of the species and
protect its habitat. It should be noted that the estimated monetary
needs for all parties involved in recovery are identified and,
therefore, Part III reflects the total estimated financial requirements
for the recovery of this species.”
A hypothetical example follows this discussion. Each column of the schedule
is discussed below:
A. Task Priority - In contrast to the Narrative Outline, tasks in the
Implementation Schedule will be arranged in priority order; thus, all
Priority 1 tasks will be listed first, consolidating them and increasing
their visibility. Assign task priorities as follows:
Priority 1 - An action that ~ be taken to prevent extinction or
to prevent the species from declining irreversibly in the
foreseeable future.
Priority 2 - An action that must be taken to prevent a significant
decline in species population/habitat quality, or some other
significant negative impact short of extinction.
Priority 3 - All other actions necessary to meet the recovery
objectives.
05/25/90
1-15
B. Task Number - This should be taken directly from the Narrative Outline.
Include only the lowest “stepped down” tasks. As an example, in the
following segment:
2.0 Protect existing populations of X plant
2.1 Build enclosures to prevent deer browsing at
three population sites
2.2 Remove competing vegetation once annually
The step 2.0 would not appear in the Implementation Schedule, but 2.1 and
2.2 would.
C. Task Descriotion - This may be taken verbatim from the Narrative
Outline, or slightly modified for the sake of brevity.
D. Duration - Indicate whether the task is “ongoing,” whether it needs to
be “continuous,” and the estimated number of years that will be required
for its completion.
E. ResDonsible Party - Indicate each FWS Region and program that will be
actively involved and/or commit funds to the task. If more than one Region
or organization is involved, use an asterisk to identify the lead entity.
The Service need not be included if it has no financial involvement in a
particular task. All other organizations involved and/or committing funds
to the task should also be listed, based on coordinated decisions regarding
recovery implementation task responsibilities.
F. Cost Estimates - Though ideal to designate each Fiscal Year
specifically, beginning with the FY subsequent to that in which the plan
is approved, setting up hypothetical “FY 1, 2, 3’ format is often
necessary. Avoiding the hypothetical format, if at all possible, emphasizes
the importance of funding and implementing tasks in a given year. Service
costs should be identified separately from those of others and should
include all major Service costs associated with management of the species.
Although this breakdown requires additional effort and coordination with
other agencies, it increases the value of the implementation schedule for
Service budgeting, as well as providing an estimate, of the overall cost
of the species~ recovery. Costs should align with the respective entity
in the Responsible Party columns. Dollars should be shown in thousands.
Other agencies will also benefit by being able to show in their own budget
submittals that their funds are identified in an approved recovery plan
and are therefore part of the overall coordinated recovery effort for that
species.
G. Comments and Notes - Other relevant information may be included here,
such as required person-hours, whether this task is specified in state-level
recovery plans, or other documents. This column may be left blank so that
users or reviewers may make appropriate notes next to various tasks.
05/25/90
RECOVERY PLAN IMPLEMENTATION SCHEDULE
TASK
DESCRIPI ION
Population dynan-ics
analysis
Reduce incidental
take of adults
Improve, operate
fish ladder
Secure adequate
streu~f lows
Determine optim-um
spawning run
Predator/prey
studies
Identify limiting
contininants
Reduce tribal
harvest
Initiate contact
with Mexico
TASK
DURA-TI
ON
(YRS
)
3
ongoing
ngoIng
ngo ing
2
2
2
rngo ing
1/2
~t~rurIvO~LE
FWS
Reg. Program
8 NERC
1
I
1
8
8
1
I
9
LE
FIJI:
DEN
MA’
NFRS
NFRS
EC’
MA
IA
~AHIY
Other
SIA
NMFS’
CAF6.C.
BPA
BR
CAI&C*
EPA
SIA
COST ESTIMATES
FY1990 FY1991
100
9
50
50
15
20
20
20
20
10
10
10
25
100
9
50
50
15
20
20
20
20
10
10
20
15
18
35
20
10
25
TASK
9
1.1
2.1
C (JMM[ NT S
3. 1
PRIOR-ITY
9
1
1
1
1
2
2
2
2
2
4.1
1.2
1.3
1.4
2.2
2.3
$000)
FY1992
100
9
50
50
15
20
20
20
20
l0
10
20
15
18
35
20
10
25
5
— —
RECOVERY PLAN IMPLEMENTATION SCHEDULE (continued)
TASK
DESCRIPTION
Develop multi-state
agreement
Operate hatchery
successfully
Study disease in
other populations
Intraspecific
cumpetition
studies
Monitor
harvest
tribal
Improve upStream
migrant survival
Acquire
habitat
critical
easement
Rehabilitate
spawning habitat
Improve hatchery
disease status
Compare survival
stocked fry vs.
fingerlings
TASK
DURA-T
ION
(YAS)_
2
ongoing
2
2
ongoing
ongoing
2
5
I
2
RESPONSIBLE PARTY
FUS
Reg. Program Other
1 FIJE
1
8
8
I
I
I
I
1
NFRL
NE RC
FUE’
RF
FIJI
FH
BIA
SPA
EOE
OLM
FS
COST ESTIMATES
FY1990 FY1991
200
10
25
10
10
10
200
10
25
15
15
15
1 COMMENTS
PR IOR -
ITT
9
2
2
3
3
3
3
3
3
3
3
I ASK
9
2.4
5.1
1.5
1.6
2.5
3.2
4.2
4.3
5.2
5.3
$000)
F Y 1992
20
200
50
25
10
25
25
25
125
10
50
50
35
15
— —
RECOVERY PLAN IMPLEMENTATION SCHEDULE (continued)
PR IOR-ITY
9
3
3
3
3
TASK
9
6.1
6.2
6.3
6.4
— —
TASK
DESCRIPTION
Produce p~hlets
Meet with groups
of sportsmen
Inform state/fed
elected reps
Set up volunteer
program
I ASK
DURA-T
ION
(YRS)_
1/2
ongoing
ongoing
2
RESPONSIBLE I’AKIT
RiDS
Reg. Program Other
1
I
1
9
I
PA
FIlE
PA’
LS
PA’
FIJI:
COST ESTIMATES ~$000)
FY1990 FY1991 FY1992
5
5
1
S
5
1
625 168
3
S
51
15
S
COMMENTS
I—.
Co
* Denotes lead responsibility for a given task.
1-19
SAMPLE DEFINITIONS AND ACRONYMS PAGE
Priorities in column one of the following implementation schedule are
assigned as follows:
1. Priority 1 - An action that ~ be taken to prevent extinction
or to prevent the species from declining irreversibly in the
foreseeable future.
2. Priority 2 - An action that must be taken to prevent
decline in species population/habitat quality or some
significant negative impact short of extinction.
a significant
other
3. Priority 3 - All other actions necessary to meet the recovery
objective.
Key to Acronyms used in Ininlementation ~a-ka,41e
BIA
BLM
BR
CAF&G
COE
EPA
FS
FWS
- Bureau of Indian Affairs
- Bureau of Land Management
- Bureau of Reclamation
- California Fish and Game
- Corps of Engineers
- Environmental Protection Agency
- Forest Service
- Fish and Wildlife Service
- Environmental Contaminants
- Engineering
- Fish and Wildlife Management
- Fish Hatcheries
- Fish and Wildlife Enhancement
- International Affairs
- Law Enforcement
- Legislative Services
- National Ecology Research Center
- National Fisheries Research Laboratory
- National Fisheries Research Seattle
- Public Affairs
- Refuge
Assi stance
NMFS - National Marine Fisheries Service
EC
DEN
MA
FH
FWE
IA
LE
LS
NERC
NFRL
NFRS
PA
RF
05/25/90
1-20
IV. APPENDIX
Completed plans should contain a list of reviewers. All letters of
comment should be kept on file as part of the administrative record.
Substantive letters or comments may be included in the Plan at the
discretion of the Regional Director. Other pertinent material such as
referenced policy statements or agency documents should be included. If
the appendix is particularly lengthy, it should be preceded by a title
page and a definitive, paginated list of the contents.
All significant comments that are not printed in the appendix should
be made available to other Federal agencies that will use the recovery plan.
05/25/90
APPENDIX II
ORGANIZING THE RECOVERY EFFORT: ROLES AND OPTIONS
05/25/90
TABLE OF CONTENTS
Page
Organizing the Recovery Effort -- Personnel Considerations
Sample Recovery Team Appointment Letter
Recovery Team Responsibilities
Recovery Outlines -- Memo and Format
Lead Regions for Endangered Species Activities
Species Status Report
Part I - Status of each listed species with approved plans
Part II - Status of development and implementation of plans
Part III - Individual species recovery progress
• . . 11—1
• . . 11-4
• . 11-6
• . . 11-8
• . . 11-10
• . 11-19
• . 11-20
11-21
11-22
OS/2 5/90
lI—I
ORGANIZING THE RECOVERY EFFORT- -PERSONNEL CONSIDERATIONS
A. Service Biolociists
Service biologists may write recovery plans or act as technical editors,
working with either the recovery team or the individual Cs) contracted to
write the recovery plan. In addition, Service biologists coordinate, or
may actually conduct both management and research-oriented recovery tasks.
It is the responsibility of these individuals to collaborate as appropriate
with Federal, State, and independent personnel. Service biologists submit
budget proposals for recovery activities, they assist State agencies with
recovery proposals for Section 6 funds, and ensure coordination of project
funding among other agencies. Service biologists knowledgeable of
consultation requirements can advise on the likely effects of development
or other human activities on the species. Such a person could also serve
as a future point of contact for persons conducting regulatory programs
related to this species/ecosystem group. Service biologists, also often
members of the recovery team, may act as the liaison between the Service
and the recovery team.
B. SDecies Recovery Coordinators
Species recovery coordinators have been established for several listed
species with high public visibility or unusually complex recovery programs.
A species coordinator serves under the Regional Director as the Service’s
focal point for all matters relating to recovery of the species. The
responsibilities include coordinating research and recovery actions among
all involved agencies and individuals and working with Region 9, Division
of Endangered Species and/or the Regional Public Affairs Officers to provide
a continuing source of public information on the Service’s activities and
the species’ recovery progress.
C. Recovery Teams
1. Description
A recovery team provides biological advice to a lead Regional Director.
A team can be established as a species-specific recovery team, such as the
Whooping Crane Recovery Team, or as a group or ecosystem-specific recovery
team, such as the New Mexico Plant Recovery Team. The recovery team serves
only in an advisory capacity to the Service. The Regional Director, not
the recovery team, exercises the Service’s authority and responsibility with
respect to all recovery actions.
A team may write the recovery plan for a species or provide technical
editing. In appointing a recovery team, a Regional Director should clearly
indicate the role it is to play and the products expected of it. A team
OS/25/90
11-2
responsible for more than one plan may divide its members into working
groups for the separate plans. Recovery teams may also be formed to serve
strictly in an advisory capacity to the Regional Director, leaving the
plan preparation to a different party.
2. Selection and Appointment
Factors for selection of team members are: 1) expertise with respect
to the species or the ecosystem in which it is or may once again become a
part; 2) current involvement with the species or closely related species;
and 3) special knowledge of one or more threats contributing to the listed
status of the species. Within size constraints, teams should include
individuals of as many disciplinary perspectives as practical and
appropriate. However, recovery teams are exempted from the Federal Advisory
Committee Act, which would otherwise allow any individual or group to
request to be placed on such an advisory group. Teams often include
representatives of State, Tribal, or Federal agencies, academic
institutions, conservation organizations, and other constituencies with an
interest in the species and its recovery.
The size of recovery teams is at the discretion of the Regional
Director. In certain cases, they may be as small as one or two people;
however, a more broadly based team will usually be advantageous. The
Regional Director may designate the team leader or allow the team to make
the selection. Though in general, it is preferable for the team leader to
be a Service employee, the team leader should be selected for his/her
knowledge of the species and its related concerns or because of leadership
ability. If the team is divided into working groups to prepare more than
one plan, a team member is appointed by the team leader to take charge of
each group. Teams may also use consultants who offer special expertise
but are technically not members of the team. In addition, a team may invite
observers from interested organizations, other agencies, universities, and
foreign governments to attend team meetings.
Recovery team members and consultants are appointed by lead Regional
Directors with the approval of the prospective team member’s employer, and
in consultation with the States, other cooperating organizations or foreign
governments, and the Director (through Region 9, Division of Endangered
Species). Potential nominees should be fully informed by the Regional
Director of the implications of team membership such as costs, workload,
and time constraints. The appointment letter should explain these items in
detail. (A sample appointment letter appears on the following page.)
After the recovery plan has been completed, the recovery team may continue
to serve indefinitely in an advisory capacity to the Regional Director,
and at the Regional Director’s request may take an active role in
coordinating recovery activities.
Public announcements on the selection of recovery team leaders, members,
and consultants may be made by the lead Regional Director. A joint,
simultaneous announcement of a recovery team appointment by the Service
05/25/90
11-3
and a State wildlife agency director may occur where appropriate and if
requested. This is especially appropriate for species for which a State
plays a central role.
05/25/90
11-4
SAMPLE RECOVERY TEAM APPOINTMENT LETTER
If the team member is employed by a public agency, the letter should be
addressed to the head of the agency and request the services of the
employee. Minor wording changes will be necessary. Verbal concurrences
from the prospective team member should be obtained before the letter is
sent. Discussion of travel expenses should be tailored to the specific
situation.
Dear
The (common name, followed by scientific name) was recently listed by
the U.S. Fish and Wildlife Service as (threatened or endangered) under the
Endangered Species Act of 1973, as amended. This Regional Office has the
responsibility to develop a Recovery Plan for this species. To accomplish
this task, we are forming a recovery team comprised of persons who have
experience with the species or the threats it faces. Members of a recovery
team serve at the pleasure of the Fish and Wildlife Service Regional
Director who has lead responsibility for recovering a listed species.
Although the role of recovery team member is strictly advisory in nature,
the team’s recommendations normally guide the Service, other Federal
agencies, and even State governments in recovery activities.
I would like to appoint (name of appointee) to be a member of the
recovery team for (state species). His/Her expertise would be invaluable
in the development of a recovery plan. Other prospective team members are:
(list the individuals, and their affiliations, if any)
The recovery team is expected to complete a first draft of a recovery
plan by (state date), with the final plan completed by (state date). I
expect that approximately (state number and duration) team meetings will
be necessary during preparation of the plan. The team will have substantial
latitude in setting the time and location of these meetings. Once the
recovery plan is complete, the team may periodically asked to advise me on
various matters until the species is recovered.
I hope to schedule the first meeting of the recovery team, a one-day
session, on or before (state date). The Service’s liaison to the team is
(state name and phone number), who will be contacting (him/her) shortly.
Please feel free to call (him/her) or me at any time if you have any
questions. 1 hope you will be able to make this contribution to the
preservation of our nation’s biological heritage.
Sincerely,
Regional Director
05/25/90
11-5
3. Fish and Wildlife Service Oversight
The Service lead Regional Director directs teams through:
a. Establishing and terminating teams when appropriate;
b. Appointing, removing, and replacing team members and
consultants as necessary;
c. Approving recovery plans (and their subsequent revisions and
updates);
d. Developing the team’s operating and planning guidelines; and
e. Appointing a Service employee as an active team
member or team liaison.
4. Coamiunications
Teams may meet •as frequently as necessary. Experience indicates the
need for each team to prepare minutes of each meeting and submit them to
the Regional DIrector for distribution to cooperating parties and affected
States and other agencies. Reports on accomplishments, such as inventory
work, are often presented at team meetings and should be included in the
minutes.
Unless the team leader is a Service employee, Service letterhead and
franked enveloped should not be used for team business. To do so could
imply that the team is expressing Service policy or positions. Official
Service letters to a team are directed to the team leader. For species
that occur in more than one Region, the lead Region will keep the other
involved Region(s) fully informed of team activities. When more than one
Region has a team for a given species, the Region with lead recovery
responsibility must carefully coordinate among the teams.
5. Funding
Although salary, per diem, and travel costs associated with recovery
team activities are normally borne by the members’ employing agencies,
routine business expenses are borne by the Regional Director. The Regional
Director has the discretion of also furnishing travel and related funds
for the expense of team members. Service personnel serving on a recovery
team are supported by their own station funds. Travel expenses of
consultants on team business, clerical and drafting services, supplies,
printing costs, and other special services for team business are funded by
the lead Region. Observers, however, will cover their own expenses.
If the team leader is not a Federal employee, a contract or purchase
order may be used for financing routine tear~ business. This agreement can
remain in force as long as necessary. As soon as it is determined that
05/25/90
11-6
funds are available for the next fiscal year, the Regional Director will
provide the team leader, in writing, with an allotment available to support
the team. If the team leader is replaced by another non-government
employee, a new agreement must be prepared and signed by the Regional
Director and newly appointed team leader.
6. Responsibilities of A Recovery Tean
In addition to the activities described in the above guidelines, a
recovery team ~ solely at the request of the Regional Director, provide
assistance on other aspects of Service responsibilities toward the species
(e.g., Section 7 consultation, identification of critical habitat, and
research proposals). In consultation with the Regional Director, the team
also may provide requested assistance to other participating agencies but
if, and only if, the team is willing to do so. Should the team provide
any policy analysis or recommendations, the recipient must be cautioned
that this information represents the team’s views, not necessarily the
views of the Service or any other agency.
Recovery teams also may inform interested parties of Its activities,
as the team considers appropriate. When outside contacts occur, the team
must from the beginning accurately describe its relationship to the Fish
and Wildlife Service.
For the protection of the recovery team members, and in the best
interests of species recovery, the recovery team should be mindful of a
number of situations that it should avoid. Specifically, it is
inaDDroDriate for a recovery team to:
-- Represent itself as speaking for any agency.
-- Distribute draft plans. The Regional Director will obtain the views
of cooperators, other Federal and State agencies, and the public.
-- Independently implement recovery actions. This remains the job of
the individual cooperating agencies, although recovery teams may participate
in recovery actions with the approval of the Regional Director and
appropriate officials of relevant cooperating agencies.
-- Act as an official consulting group to anyone other than the
Regional Director on socio-economic, political, or administrative issues.
- - Designate Critical Habitat in the context of Section 4 of the
Endangered Species Act. This is the responsibility of the Secretary of
the Interior. The team may be requested, or may volunteer, to identify
such habitat for the Regional Director.
-- Call to the attention of offending parties any actions it judges
to be adverse to the species. This is the responsibility of the Secretary
of the Interior or other Federal or State agencies, as appropriate. The
05/25/90
11-7
team should bring any such actions to the attention of the Regional
Director.
-- Act through the news media, conservation organizations, State or
Federal legislators, or other parties to influence any agency decisions,
except In so far as the lead Regional Director advises them, in advance.
-- Reallocate agency responsibilities with respect to the assigned
species or assign responsibilities beyond those approved in the plan.
-- Prepare Environmental Impact Statements or accept other
responsibilities outside its planning assistance roles without the prior
concurrence of the Regional Director.
-- Lobby for funds without the concurrence of the Regional Director.
-- Interject itself in litigation or regulatory actions.
-- Pressure cooperating agencies to accept the team’s viewpoint.
-- Take any action or represent any concept, either as individuals or
as a team, that would adversely affect its professional integrity.
These rules are not intended to limit the ability of individuals to
perform duties associated with their usual occupation, but are only intended
to guide behavior with respect to their roles as members of a recovery team.
7. Contracting
The Service may use private contractors to write recovery plans. These
individuals may be employees of State conservation agencies, universities,
museums, private conservation organizations, or private contracting
businesses with relevant expertise. Contractors may also be used to conduct
recovery task projects under separate contracts.
05/25/90
0
United States Department of the Interior
FiSH AND WILDLIFE SERVICE
WASHINGTON. D.C. 20240
AOOA3S OIU.Y ?~E 0c’TO.
~ ~ ~LaLgI UW~
In Reply Refer To:
FWS/EHC/BLR
FEB 2 i989
Memorandum
To: Regional Director, Regions 1, 2, 3, 4, 5, 6, 7, and 8
From: Director
Subject: Early Planning for Recovery of Endangered and Threatened Species
(Due Date: 60 Days)
For several years Ihave been concerned about the Fish and Wildlife
Service’s (Service) effectiveness in managing the recovery of listed
species. During reauthorization of the Endangered Species Act, Congress
expressed an interest in effective recovery programs for listed species,
and the General Accounting Office has recently issued a report on the
effectiveness of the Service’s recovery activities, outlining areas for
Improvenent.
It is important that the Service not only pursue conservation goals, but
that it be able to report to Congress and to the public on the status of its
recovery progress. Consequently, I am instituting a means of encouraging
early attention to planning recovery efforts. Whenever a species is listed,
the responsible lead Regional Director will submit to mm, within 60 days of
publication of the final rule, a recovery outline that briefly explains
the Region’s intended course of action with respect to hme the species’
needs will be addressed. The outline will not be a recovery plan, but
should explain whether a plan will be prepared and the estimated time of
its completion, whether a recovery team will be appointed, and whatever
other recovery act1e~ are anticipated for the species. An outline format
is attached for your use. The Division of Endangered Species and Habitat
Conseryatlem will ~1flta1n a file of recovery outlines for purposes of
informatios and tracking. The Division will also provide me with policy
review, as meeded, of outlines. The first recovery outlines are due to me
60 days after the date of this memorandum and should cover all species
listed since January 1, 1989. Regional progress t~,ards development of
recovery plans will be monitored by the Division using the copies of cover
pages that are submitted for all draft and approved plans.
Attaciwnent
11-9
RECOVERY OUTLINE FORMAT
1. Species Name
Common:
Scientific:
2. Date Listed
3. Recovery Priority Number:
4. Anticipated Recovery Action include information from applicable items
bel ow.
Appoint recovery team (indicate expected time of appointment)
Prepare recovery plan (indicate expected date for draft)
Acquire habitat (describe briefly, if known)
Consult with Federal Agencies (indicate which ones)
Consult with private interest (give names)
Develop habitat conservation plan (indicate participants)
Develop other agreements (describe and indicate participants)
Enforce trade/taking restrictions (explain need and means)
Undertake research (indicate questions to be addressed)
Other (as appropriate to particular species)
4. Date/Signature of Regional Director
OS/2 5/90
11-10
LEAD REGION(S)
FOR ENDANGERED SPECIES ACTIVITIES
05/25/90
11—11
TAJ~ U
United States Department of the Interior ________
•~ a’-.’ ~‘ FISWHAASHNIDNGWTIOLDNL, IDF.EC. SE2R02V4I0CE -U —
AOOESS Offi.V YWf OIAEC”TOR.
~IS~ A~O ~LOU~E SEAVICI
In Reply Refer To:
FWS/EHC/BLR
~DD 171989
Memorandum
To: Regional Director, Regions 1, 2, 3, 4, 5, 6, 7 and 8
From: Deputy Assistant Secretary for Fish and Wildlife and Parks
Subject: Lead Regions for Endangered Species Activities
(Response due June 1, 1989)
Effective April 15, 1989, the attached document will guide assignmentof
lead Regions for endangered species activities within the Service. It Is
based on the draft circulated in December 1988, as modified to ensure
consistency with the planned delegation of permits to Regions and to respond
to Regional comments on the earlier version. An evaluation will be
conducted in approximately 6 months to determine whether further
modifications are warranted.
The procedures described in the document depend on cooperation among
Regional Offices in deciding lead responsibilities and authority. Thus,
rigid formulas have been avoided in preference to mutual agreement in
assigning leads. Some responses to the draft questioned the degree to
which lead Regions would be responsible for activities occurring in other
Regions or the extent of coordination necessary between lead and other
Regions undertaking initiatives. Such matters should be decided by mutual
arrangement among the Regions involved; it Is not intended that the document
will specify the details of these agreements.
The Division of Endangered Species and Habitat Corfservation is developing
a database to track lead listing and recovery assignments; a draft is
attached reflecting Regional coriinents on the preliminary list of recovery
leads circulated in December. Please note that inclusion of Region 8 In
the range of a species reflects the species’ occurrence outside U.S.
territory, rather than the existence of a research program directed at its
recovery. Recovery leads for three listed species (American peregrine
11—12
falcon, Olive ridley sea turtle, and piping plover) remain to be determined.
In these cases, Regions involved should coordinate lead agreements and
transmit the results to me by June 1, 1989, for incorporation into the
tracking database.
/
Attachments
V
11-13
ASSIGI~4E~T OF’ LEAD REGIONS
FOR E~AN~Pfl) A~ TI~EATE~~ SPECIES
This docwnent is intended to guide the assigrment of lead responsibility
for endangered and threatened species listing, recovery, consultation, and
permit issuance when the range of a species or scope of an activity is not
confined to a single Region. The essential concept eribodied in the
foll~ing guidance is that lead responsibility and authority and the degree
and character of any subsequent coordination between lead and non—lead
Regions are metters appropriately decided by mutual agreement among Regions.
The Washington Office will not rr~ke lead assigrnnents or prescribe the nature
of inter—regional relations unless there is a failure among affected Regions
to reach agreement.
Lead Region Database
The Washington Office will n~intain a database of lead Regions by species
for listing (including candidate monitoring and asses~rent) and recovery.
It is expected that in most cases a single Region will function as lead
for all such activities regarding a species. In ~ circtnnstances,
functional leads for a given species n~y be divided among Regions so that,
for exaxr~le, one Region would have the lead for listing a species and
another Region have the lead for recovery. Such divided responsibilities
will be noted in the database.
Reporting Agreements and Resolving Disagreements
Any agreement reached among Regions regarding lead listing or recovery
responsibility for a species will be pron~tly corrrnunicated to the Director
in a memorandinn from the agreed—upon lead Region so that lead responsibility
can be tracked in the database. Any inability to reach agreement will
also be referred to the Director, along with an explanation of the substance
of the disagreement, for resolution.
Listing and Recovery
1. As a general rule, when the range of a species crosses Regional
boundaries, lead responsibility for candidate asses~ent, petition findings,
listing, and developuent of a recovery plan will be determined by agreement
among the Regions involved.
2. In the cases of sortie relatively wide—ranging species, it n~y be
necessary to divide lead responsibility so that different Regions have
responsibility for different geographic segments of the species’ range (in
which case the database will treat each segment as a seFarate entry) or
for different aspects of the Service’s involvement with the species. Such
fragmentation of responsibility is expected to be necessary only rarely
11-14
2
and should be avoided when possible because of the increased coordination
required to assure range-wide compatibility in the way species are treated.
3. A lead Region is responsible for keeping all other Regions that share
portions of the species’ range aware of the state of its involvement with
the species. When a Region with lead responsibility for a species
undertakes a significant action such as listing, reclassification, or
approval of a recovery plan, it is responsible for circulating draft
docimients to other involved Regions and obtaining their written concurrence
before undertaking the action. A rule submitted by a lead Region for
approval will be acc~r~nied by evidence of concurrence by other involved
Regions. Non—lead Regions are responsible for providing the lead Region
with any information available to them that bears on the species’ status
and for responding promptly to lead—Region requests for information or
evaluation regarding the species.
4. Except for cooperative programs with States funded under Section 6 of
the Endangered Species Act, or by doctmiented mutual agreement between the
concerned Regions, a Region with lead recovery responsibility for a species
will also be responsible for coordinating any funding, research, or
management initiative for the species, even if the initiative originates
with another Region having current or historical range for the species or
with Region 8. Section 6 initiatives by a non—lead Region will be that
Region’s responsibility in consultation with the recovery lead Region.
Thus for instance, Region 2 has overall responsibility in consultation
with the other Regions involved for defining research needs, formulating a
budget, and developing a recovery strategy for the whooping crane, although
Regions 4 and 8 may be the principal recipients of funds for establishing
a non-migratory flock in the Southeast. Region 4, hc~ever, has primary
responsibility for cooperative programs with its States on sea turtles,
and will consult with Region 2 in order to ensure consistency between those
programs and overall conservation goals for these species.
Permit Issuance
1. In general, the lead Region for issuance of permits to take native
endangered species will be the Region in which the permitted activity is
to take place, except that the Office of Management Authority, in
consultation with Region 8, will retain lead responsibility for issuance
of export, import, and interstate and foreign corrm~rce permits.
2. When an application applies to activities that would occur in more
than one Region, the affected Regions will mutually agree upon which Region
will ta~:e the lead in processing the application. If one of the Regions
is the lead recovery Region for the species, that Region should take the
lead in processing the application.
3. In general, all Regions in the range of a species should be offered an
opportunity to conirient on an applicution dealing with that species, and
where recarriendations differ, there should be discussion among the Regions
11—15
3
to attempt to resolve them. Special consideration should be given to
corrinents of the Region having the lead for recovery of the species.
4. An application directed to any Regional Office or to the Washington
Office will be referred internally to the Office with issuing responsibility
and authority. The applicant will not be required to knc~ beforehand which
Region has issuing responsibility and authority.
Consultat ion
1. When an action takes place in more than one Region, generally the lead
Region will be the one in which the greatest impact or the largest ntm~ber
of affected species occurs. When there is a question on this point, the
Regions involved will agree on a lead. If agreement cannot be achieved,
the case will be referred to the Director for resolution. If a Federal
agency initiating consultation has a question as to which Region should
have the lead, it should seek the advice of the Washington Office.
2. Lead responsibility for a consultation will be determined independently
of lead recovery responsibilities for the species involved. When a Region
consults on a species for which it does not have lead recovery
responsibility, it will be responsible for coordinating with the recovery
lead Region to ensure consistency between consultation results and other
activities relating to the species. The level of coordination necessary
is subject to mutual agreement between Regions, and a recovery lead Region
may release other Regions from the obligation to coordinate on non—jeopardy
opinions. The Regional Director that signs a biological opinion is fully
responsible for its contents and has full authority for any jeopardy finding
or other element of the opinion.
3. The Service nay enter into agreements with agencies requiring
consultation on programs with geographically broad effects in order to
establish a framework for assigning lead responsibilities among Regions.
11-16
Page No.
12/21/89
Spec ies
1
LEAD REGIONS FOR LISTED SPECIES
Range (asterisk indicates
lead —— extirpated in
parentheses)
Bat, gray
Bat, Indiana
Bat, Ozark big—eared
Bat, Virginia big—eared
Bear, grizzly or brown
Caribou, woodland
Cougar, eastern
Dugong
Ferret, black—footed
Jaguarundi
Manatee, West Indian (Florida)
Ocelot
Otter, southern sea
Seal, Caribbean monk
Seal, Guadalupe fur
Wolf, gray
Wolf, red
Crane, whooping
Curlew, eskimo
Eagle, bald
Falcon, American peregrine (eastern)
Falcon, American peregrine (western)
Falcon, American peregrine (Alaska)
Falcon, Arctic peregrine
Falcon, northern aplomado
Goose, Aleutian Canada
Pelican, brown
Plover, piping (Atlantic coastal)
Piping plover (interior)
Rail, Yuma clapper
Tern, least
Tern, roseate
Vireo, black—capped
Vireo, least Bell’s
Warbler (wood), Kirtland’s
Woodpecker, ivory—billed
Woodpecker, red—cockaded
Alligator, American
Boa, Virgin Islands tree
Rattlesnake, New Mexican ridge—nosed
Tortoise, desert
Turtle, green sea
Turtle, hawksbill sea (—carey)
Turtle, Kemp’s (Atlantic) ridley sea
Turtle, leatherback sea
Turtle, loggerhead sea
Turtle, olive (Pacific) ridley sea
Toad, Puerto Rican
Catfish, Yaqui
2, 3*,4, 5,6
2,3*,4,5,6
2*, 4
4,5*
1,6*, (2,3)
1*,8, (3,5,6,7)
5*,8, (3,4)
l*,8
6*, (2,8)
2*,8
2,4*,8
2*,8
l*,8
(4*,8,NMFs)
l*,8,NMFS
3*,6,8 (1,2,4,5)
4*, (2,3,5)
l,2*,6 (3,4)
1, 2, 3, 4, 5,6, 7*8
l,2,3*,4,5,6,
3,4, 5*, 8
l*,2,6,8
7*
1,2,3,4,5,6,7*8
2*,8
1,7*
l*,2,4,8
2, 3,4,5,6,8
2,3*,4,6,8
1,2*
2,3*,4,6
4,5*,8
2*,8, (6)
l*,8
3*,4,8
8, (2,4*)
2,4*,5, (3)
2,4*
4*,8
2*,8
1*,2,6
l,2*,4,5,8,NMFS
1,2*,4,8,NMFS
2*,4,5,8,NMFS
l,2*,4,5,8,NMFS
l,2*,4,5,8,NMFS
l,2*,4,8,NMFS
4*, (8)
2*,8
11—17
2
LEAD REGIONS FOR LISTED SPECIES
Spec ies
Cavefish, Ozark
Chub, bonytail
Chub, Chihuahua
Chub, humpback
Chub, slender
Chub, Sonora
Chub, spotfin
Chub, Virgin River
Chub, Yaqui
Darter, leopard
Madtom, yellowfin
Minnow, bach
Pupfish, desert
Shiner, beautiful
Spikedace
Sguawfish, Colorado River
Sturgeon, shortnose
Trout, Lahontan cutthroat
Woundf in
Pearly mussel, Appalachian monkeyface
Pearly mussel, birdwing
Pearly mussel, cracking
Pearly mussel, Cumberland monkeyface
Pearly mussel, dromedary
Pearly mussel, green—blossom
Pearly mussel, Higgins’ eye
Pearly mussel, little—wing
Pearly mussel, orange—footed
Pearly mussel, pale lilliput
Pearly mussel, pink mucket
Pearly mussel, tubercied—blossom
Pearly mussel, turgid—blossom
Pearly mussel, white wartyback
Pigtoe, fine—rayed
Pigtoe, rough
Pigtoe, shiny
Pocketbook, fat
Riffle shell, tan
Beetle, American burying
Bird’s—beak, salt marsh
Cactus, Cochise pincushion
Cactus, Key tree
Cactus, Knowlton
Cactus, Kuenzler hedgehog
Cactus, Lloyd’s Mariposa
Cactus, Mesa Verde
Cactus, Suer pincushion
Cactus, bunched cory
Clover, running buffalo
Range (asterisk indicates
lead —— extirpated in
parentheses)
2,3,4*
1,2,6*
2*,8
1,2,6*
4*,5
2*,8
4*,5
1,2,6*
2*,8
2*,4
4*,5
2*,8
l,2*,8
2*,8
2*,8
1,2,6*, (8)
4, 5 , B , NMFS *
l*,6
2,6*
4*,5
4*,5
3,4*
4*,5
4*,5
4*,5
3*, (6)
3,4*,5
3,4*,5
4*,5
3,4*,5
3,4*,5
3,4*
3,4*
4*,5
3,4*,5
4*,5
3,4*
4*,5
2,3,4,5*,6,8
l*,8
2*,8
4*,8
2*,6
2*,8
2*,8
2*,6
1,2*,6
2*,8
3*,4,5, (6)
Page No.
12/21/89
11-18
Page No.
12/21/89
3
LEAD REGIONS FOR LISTED SPECIES
Species Range (asterisk indicates
lead —— extirpated in
parentheses)
Cycladenia, Jones
Daisy, lakeside
Dropwort, Canby’s
Fern, American hart’s—tongue
Frankenia, Johnston’s
Geocarpon minimum (=Sci. Name)
Globe—berry, Tumamoc
Goldenrod, Houghton ‘s
Harperella
Iris, dwarf lake
Lousewort, Furbish
Milk—vetch, Mancos
Milkweed, Mead’s
Monkshood, northernwild
Orchid, eastern prairie fringed
Orchid, western prairie fringed
Pink, swamp
Pogonia, small whorled
Pondberry
Thistle, Pitcher’s
2,6*
3*,8
4*,5
3,4*,5
2*,8
3,4*
2*,8
3*,8
4*,5
3*,8
5*,8
2*,6
3*,6
3*,5
3*,4,5,8
2,3*,6,8
4,5*
3,4,5*,8
3,4*
3*,8
11-19
SPECIES STATUS REPORT
(PARTS I, II, AND III)
05/25/90
11-20
SDecies Status ReDort - (Part I
)
STATUS OF EACH LISTED SPECIES Mliii APPROVED RECOVERY PLANS
Listed
SDecies
:
Species list to
be provided by DES
for each report data
call.
*Please report status with a single letter.
I—Improving (Increasing)
S—Stable
D—Decl ining
U—Un known
E—Exti nct
Date of Report:
Lead
Status:*
05/25/90
11-21
Listed
SDecies
:
SDecies Status ReDort - (Part II
)
STATUS OF DEVELOPMENT AND IMPLEMENTATION OF RECOVERY PLANS
____ _________ ____ Recovery
Achieved :~
Lead
Region
Recovery
2lan
Plan
* Does the species have an approved recovery plan?
either Y (Yes) or N (No). If a recovery plan is not
necessary, please respond with NA (Not Applicable).
Please answer with
anticipated as
** What is the stage of the plan? Please respond with F (Final-Approved),
Rev (Revised), A (Agency Draft), I (Technical Draft), I/A (Technical/Agency
Draft), U (Under Development), R (Under Revision), or NA (Not Applicable).
AAA What percentage of the species recovery objective has been met?
Please respond with an integer from 1 to 4.
1— O%-25% achieved
2— 26%-50% achieved
3— 51%-75% achieved
4— 76%-100% achieved
Date of Report: _______________
05/25/90
11-22
Date of Report:.......................
SDecles Status ReDort - (Part IJfl
INDIVIDUAL SPECIES RECOVERY PROGRESS*
1. Species:
2. Group:
3. Listing/Date:
4. Species Status:
5. Recovery Priority:
6. Recovery Plan Title:
7. Lead Region/Region Responsible for Recovery Plan:
8. Recovery Plan Stage/Date:
9. Recovery Objective/Criteria:
10. Major Activity Since Last Report:
11. Major Activity Over Next Reporting Period:
12. Recovery Achieved (%):
13. Information Current as of: .j~j..
Completed by : (name) Phone Number _____________
* To be completed for each listed species.
05/25/90
11-23
SDecies Status ReDort - (Part III
)
INDIVIDUAL SPECIES RECOVERY PROGRESS
I. Species — Common name, followed by scientific name
2. Group — Choose
Snails, Clams,
one: Mammals, Birds, Reptiles, Amphibians, Fishes,
Crustaceans, Insects, Arachnids, Plants
3. Listing/Date — Candidate, Threatened, or Endangered/Date final rule
published if Threatened or Endangered
4. Species Status — Choose one: Stable, Improving, Declining, Extinct,
Unknown.
5. Recovery Priority- Ranking from iC to 18.
6. Recovery Plan Title —
For listed species with
should be completed for
recovery plan and none
been initiated but one
more than one recovery plan, a separate report
each recovery plan. For species with no
intended, write N/A. If no recovery plan has
will be written at some point, write Pending.
7. Lead Region/Region Responsible for Recovery Plan —
If the lead Region for the species is different from the
responsible for the plans named above, list each Region.
there will only be one number here.
Region
Otherwise,
8. Recovery Plan Stage/Date —
For Stage, write F (Final-Approved), A (Agency Draft), T (Technical
Draft), T/A (Technical/Agency Draft, U (Under Development), R (Under
Revision), or NA (Not Applicable). If the plan has been updated,
indicated with -Rev. (Revised) after the date.
9. Recovery Objective/Criteria —
Choose Recovery Objectives among: Delist, Downlist, Stabilize, and
then summarize the Criteria in the Narrative portion of the recovery
plan. Include quantitative information.
10. Major Activity Since Last Report:
Describe progress on highest priority recovery tasks, indicating actions
initiated and any discernable effects on species status.
05/25/90
11-24
11. Major Activity Over Next Reporting Period:
Describe high priority tasks to be continued or initiated over a stated
period, and their intended result.
12. Recovery Achieved:
Indicate on a fractional scale the progress toward recovery, with “I”
signifying 0-25% of the total recovery objective being met, ~2”
signifying 26-50%, “3 signifying 51-75%, 4 signifying 76-100%.
13. Information Current as of:
Indicate the Date (month/year), of the information presented on each
individual species report.
05/25/90
APPENDIX III
PUBLIC INVOLVEMENT
05/25/90
TABLE OF CONTENTS
Page
Sample Newspaper Public Notice 111-1
Sample Press Release on Public Review of a Recovery Plan 111-2
Model Federal Reciister Notice of Recovery Plan Availability . . . 111-3
Sample Technical/Agency Review Draft Transmittal Letter 111-6
Public Meeting Guidance for Recovery Plan Review 111-7
Recovery Plan Distribution List 111-9
05/25/90
111—1
SAMPLE NEWSPAPER PUBLIC NOTICE
The U.S. Fish and Wildlife Service, an agency of the Department of the
Interior, is seeking public comments on a recovery plan written for (common
and scientific name of species), which was listed in (month and year of
listing) as a (threatened or endangered) species under the Endangered
Species Act of 1973, as amended. This species occurs (give geographic
description in general terms). (Describe the circumstances that pose a
threat to the species and warranted its listing).
The recovery goal is to restore the species to a secure status in its
natural setting. The recovery plan is being developed to provide a guide
for Federal and State agencies and other parties interested in helping the
species and identifies species and habitat factors of concern for those
considering activities that may affect the species. The plan describes
tasks that, when accomplished, should ensure the species’ survival, and
thereby justify its removal from the endangered and threatened species list.
The draft recovery plan is available for public inspection during (state
duration of regular business hours) at (local address and phone number).
A copy of the draft recovery plan and additional information can be obtained
from the Fish and Wildlife Service’s Regional Office at (provide address
and phone number). Public comments on the draft recovery plan are invited,
and should be sent to the Fish and Wildlife Service at either address by
(state date 60 days from date of Dublication in the Federal Reaister)
.
(If there is to be a public meeting on the plan, indicate the day, time,
place and any necessary procedures prospective participants need to know).
05/25/90
111-2
SAMPLE PRESS RELEASE ON PUBLIC REVIEW OF A RECOVERY PLAN
The U.S. Fish and Wildlife Service announced today that it is seeking
public input on a plan to bring about the recovery of the (common name of
the species), which was listed on (date) as (endangered or threatened).
The (common name of species) lives in (types of habitat) of (geographic
region) and faces extinction due to (state maximum of two primary threats
facing species). (Include a sentences or two on the life history of the
species; what it looks like, what it eats, what eats it, any notable
interaction with man, etc.)
The recovery plan released today resulted from a year-long effort by
scientists from State and Federal agencies and leading universities. It
calls for (state recovery objective and criteria) by (state two or three
major tasks proposed in plan). Once finished, it will guide the actions
of all Federal and State agencies whose actions affect the conservation of
the (species common name). The ultimate goal is to restore the species to
a secure status in its native ecosystem.
“It is very important for us to know what the public thinks about our
approach to recovering this species,” indicated the Service’s Regional
Director (name). The Service will collect written public comments on its
recovery plan over the next 60 days and, in addition, will conduct an open
public meeting on the plan at (state time, day, place, if appropriate).
Copies of the proposed plan can be obtained from the Service by writing
(state address) or calling (state phone number).
05/25/90
111-3
MODEL FEDERAL REGISTER NOTICE OF RECOVERY PLAN AVAILABILITY
Billing Code 4310-55
Department of the Interio
Fish and Wildlife Service’
Notice of Availability of a Draft Recovery Plan for (give title, capitalize
major words) for Review and Comment (no period)
AGENCY: Fish and Wildlife Service, Interior
ACTION: Notice of document availability
SU~lARY: The U. S. Fish and Wildlife Service announces the availability
for public review of a draft recovery plan for (give title). (It/they)
occur on (private/etc.) lands in (mention general areas likely to be
affected by recommendations in the plan). The Service solicits review and
comment from the public on this draft plan.
DATES: Comments on the draft recovery plan must b~ received on or before
(60 days from Dublication in the Federal Reaister)‘to receive
consideration by the Service.
ADDRESSES: Persons wishing to review the draft recovery plan may (purchase/
examine/obtain - details to be worked out) a copy by contacting (give names,
addresses, and phone numbers). Written conunents and materials regarding
the plan should be addressed to (give appropriate name at the above or
other address). Comments and materials received are available on request
for public inspection, by appointment, during normal business hours at the
(latter/above) address.
FOR FURTHER INFORMATION CONTACT: Give name, address, and telephone number
(commercial and FTS) of most appropriate staff person (or refer to ADDRESSES
section, if same address).
1 This is a notice to be published in the Notice Section of the
Federal Register. As such it has no 50 CFR Part 17 line, “Endangered and
Threatened Wildlife and Plants” reference in the title, or “List of
Subjects” section before the “Authority” citation.
2 30 days is the allowed minimum. The Departmental Manual strongly
recommends 60-day comment periods.
05/25/90
111-4
SUPPLEMENTARY INFORMATION:
Background
Restoring an endangered or threatened animal or plant to the point
where it is again a secure, self-sustaining member of its ecosystem is a
primary goal of the U.S. Fish and Wildlife Service’s endangered species
program. To help guide the recovery effort, the Service is working to
prepare recovery plans for most of the listed species native to the United
States. Recovery plans describe actions considered necessary for
conservation of the species, establish criteria for the recovery levels
for downlisting or delisting them, and estimate time and cost for
implementing the recovery measures needed.
The Endangered Species Act of 1973 (Act), as amended (16 U.S.C. 1531 et
~gg.)requires the development of recovery plans for listed species unless
such a plan would not promote the conservation of a particular species.
Section 4(f) of theAct, as amended in 1988, requires that public notice and
an opportunity for public review and comment be provided during recovery
plan development. The Service will consider all information presented
during a public comment period prior to approval of each new or revised
Recovery Plan. The Service and other Federal agencies will also take these
comments into account in the course of implementing approved recovery plans.
(Provide a brief paragraph of introduction to the specific plan being
developed. Mention the species covered by the plan, the reasons for
listing, the specific areas likely to be affected by measures proposed in
the plan, and the approval stage of the plan).
Public Conunents Solicited
The Service solicits written comments on the recovery plan described.
All comments received by the date specified above will be considered prior
to approval of the plan.
Authority
The authority for this action is Section 4(f) of the Endangered Species
Act, 16 U.S.C. 1533(f).
Dated: ____________________________________
Regional Director
05/25/90
111-5
Mail three individually-signed (no copies of signature allowed) sets of
this notice to:
Office of Federal Register
National Archives and Records Administration
Washington, D.C. 20408
(for overnight delivery services: Room 8301, 1100 L Street NW, Wash, DC
20005)
ATTACH a small slip with name and FTS number of Regional Staff person to
contact if OFR has any question or problems. Also, ask that you be called
with both the publication date and the comment period date.
Distribution of copies of notice: AFWE
DES
IRM
AEA/PA
It is important that a copy of the Federal ReQister announcement arrive
at the Division of Endangered Species at or before the time that the
originals arrive in the Office of the Federal Register. This requirement
allows time to coordinate the changes that are often requested by the
Federal Register, Regional Office, Washington Office, or other offices
prior to publication. Communication between the Office of the Federal
Register and the Washington Office will be more effective if the latter
has the subject document.
05/2 5/90
111-6
SAMPLE TECHNICAL/AGENCY REVIEW DRAFT TRANSMITTAL LETTER
Dear
Attached is the Technical/Agency Draft of the ____________________ Recovery
Plan (Plan). This Plan has already gone through an internal technical
review dealing primarily with the biological accuracy and sufficiency of
the Plan. We are now expanding the Plan review to allow government agencies
and the public to comment on all aspects.
“Responsible” agencies are designated for all of the recovery tasks in the
Implementation Schedule. While the U.S. Fish and Wildlife Service has no
specific legislative mandate to require other Federal and State agencies
to carry out specific actions for endangered species recovery, we believe
the designated agencies have the necessary authority to carry out the
identified tasks. The Implementation Schedule serves to alert those
agencies to the need for these actions and to justify seeking funds to
carry out the actions.
Comments should be submitted to the U.S. Fish and Wildlife Service, Region
Division of Endangered Species, to the attention of ____________________
Ml comments should be received by _____________________ so that they can
be considered in production of the final Recovery Plan. All comments will
be made available to all affected Federal agencies for their consideration
prior to approval and implementation of any Plan task.
We thank you in advance for your assistance.
Sincerely,
Regional Director
05/25/90
111-7
PUBLIC MEETING GUIDANCE FOR RECOVERY PLAN REVIEW
At the discretion of the lead Regional Director, a public meeting may
be held in the general area where the species occurs. If such a meeting
is to be held, an announcement of the location and time must be published
in the Federal Reaister and local newspapers. Any party having expressed
an interest in such a meeting or in the recovery plan should be notified by
letter. The meeting should be announced far enough in advance to allow
adequate notice. The Regional public affairs officer’s advice should be
sought with regard to scheduling and public notification. A minimum of 15
days should be allowed between the Federal Register announcement and the
meeting. The public comment period must be open during and for some time
after the public meeting. Schedule and hold the meeting expeditiously.
Participation in the meeting should involve as many employees as
necessary to make presentations and to serve as door attendants,
parliamentarians, legal advisors, etc. A Regional or Washington Office
Solicitor should be in attendance, particularly if controversy is expected.
If more than one meeting is to take place, each meeting should be run the
same way. Hiring a court reporter to prepare a record of the meeting is
recommended.
A suggested agenda for meetings follows:
Introduction. Discussion of the purpose, introduction of participants,
and explanation of agenda and rules for the record.
Service Dresentation. The presentation should summarize the biological
information upon which the listing was based and discuss how the species
can be recovered.
The use of slides, large maps, handouts, or similar visual aid material
should be considered in the presentation. In particular, maps of any
critical habitats showing precise boundary lines can ensure a better
understanding. Where possible, the boundaries should be submitted for the
meeting record in writing. Do not overwhelm the audience with highly
technical information. Past and current distribution and population sizes
are important to communicate, along with a discussion of known threats and
limiting factors. Discussion should be centered on how the Recovery Plan
addresses these factors. Non-Service employees also can be asked to make
presentations.
Floor Statements. Allow attendees to make statements for the record.
If there is a large attendance and statement time is limited, be sure to
state the ground rules in the beginning of the meeting (e.g., time limit
for oral presentation, no limit on written statement, etc.). Statements
are usually taken in the following order: Federal elected officials; State
and local elected officials; Federal, State, and local agency personnel;
and then others in alphabetical order or order of arrival. Copies of all
statements given at the meeting should be collected after the presentation
OS/2 5/90
111-8
of each statement, and should be retained for the record. The public notice
should clearly state that a copy of the statement should be available at
the start of the meeting, particularly if you anticipate the need to limit
time allotted to oral presentations. (Written copies of oral statements
are not required, but should be encouraged in the public notice). Explain
that written and oral statements are given equal consideration, and that
additional written comment may be submitted for a period of time following
the meeting (give cutoff date and mailing addresses).
The introduction, Service presentations, and public statements should
be part of the record. A court reporter can be employed to prepare a record
of the meeting. Hiring such an individual is reconmiended if the meeting
is expected to be controversial, and doing so will usually provide the
quickest and most accurate record preparation. If a reporter is employed,
an agreement should be obtained for timely delivery (e.g., 2 weeks) of the
record following the meeting. As an alternative, a Service employee can
tape the meeting for later transcription, but this usually is quite
time-consuming. If this latter method is chosen, use a “fool-proof” tape
recording system operated by someone with the appropriate technical
expertise.
Approach meetings in a positive manner and be as cooperative,
informative, and courteous to attendees as possible. Avoid commitments
(e.g., “absolutely, no effect on your project”).
Ouestion and Answer Period. (This is optional and will depend on time
availability and preference of the hearing officer). Allow questions from
the floor and provide answers from Service employees. This can be conducted
on or off the record, and the hearing officer should clearly state which
is the case. The Service prefers this to be on the record unless there is
some compelling reason to the contrary. If attendees wish their questions
to be part of the record, then they should be. Requesting attendees to
fill out cards (printed name, address, affiliation and whether they wish
to make an oral statement) at the door, or to merely sign-in, serves as a
record of total attendance and is recommended.
Do not let this develop into a free-for-all debate; an impartial but
firm meeting officer is a must for a question and answer session.
05/25/90
111-9
RECOVERY PLAN DISTRIBUTION LIST
Technical Draft
1. Send one copy, as appropriate to the following:
Plants -
Dr. Bob Cook
Arnold Arboretum
125 Arborway
Jamaica Plain, Massachusetts 02130
2. Animals (with international distribution)
Lawrence Mason
Office of International Affairs (IA, Mail Stop 860 ARLSQ)
U.S. Fish and Wildlife Service
Washington, D.C. 20240
3. Other knowledgeable individuals, such as taxa and population
special ists.
Technical/Aaencv or A~encv Draft
Same as above, plus the following:
1. Fish and Wildlife Service Washington Offices at the following mail
stops:
Division of Endangered Species (Mail Stop 452 ARLSQ)
Office of Public Affairs (PA, 3447 MIB)
Division of Refuges (Mail Stop 670 ARLSQ)
Office of Research Support (RD-8/ORS, Mail Stop 725 ARLSQ)
Division of Fish Hatcheries (FH, Mail Stop 820 ARLSQ) - Fish species
only
Affected Regional offices
Affected Service field offices
05/25/90
111-10
2. Environmental Protection Agency
Hazard Evaluation Division - EEB (T5769C)
401 M Street, S.W.
Washington, D.C. 20460
3. All cooperating and/or affected agencies and countries. Include a
courtesy copy of the cover letter in Spanish to Mexico (see Memorandum
of Understanding between U.S., Canada, and Mexico, dated April 22,
1988).
Aooroved Plan
Upon signature, immediately send copy of the title page to Division of
Endangered Species.
As soon as possible, send copies to the above addresses (except 3 copies
to the Assistant Director - Fish and Wildlife Enhancement) plus the
following:
1. Department of the Interior Library
- Information on Products Branch (PMO,MS 2258 MIB) - 3 copies
2. National Fish and Wildlife Foundation
Washington (NFWF, 2725 MIB)
3. Fish and Wildlife Reference Service
5430 Grosvenor Lane, Suite 110
Bethesda, Maryland 20814
4. Plants -
International Union for Conservation
of Nature and Natural Resources
Conservation Monitoring Center (KEW)
The Herbarium, Royal Botanic Gardens
Kew, Richmond
Surrey TW9 3AB
ENGLAND, U.K.
5. Animals, except birds -
International Union for Conservation
of Nature and Natural Resources
Species Conservation Monitoring Unit
219C Huntingdon Road
Cambridge CB3 ODL
ENGLAND, U.K.
05/25/90
111—11
6. Birds -
International Council for Bird
219C Huntington Road
Cambridge CB3 ODL
ENGLAND, U.K.
7. Cave species -
National Speleological Society
Cave Avenue
Huntsville, Alabama 35810
Preservation
8. Other Washington Offices of cooperating
as the following:
and/or affected agencies, such
Endangered Species Program Manager
Office of Marine Mammals and Endangered Species
NOAA-National Marine Fisheries Service
1825 Connecticut Avenue
Room 805
Washington, D.C. 20235
Department of the Army (Military)
Natural Resources Program Manager
CEHSC-FN
U.S. Army Engineering & Housing Support Center
Fort Belvoir, VA 22060-5516
Department of the Army (Director of
Environmental Programs Branch
CECW-PP
Pulaski Building
20 Massachusetts Avenue
Washington, D.C. 20314-1000
Civil Works)
Department of the Navy
Natural Resources Program Manager
Navy Facilities Engineering Command
Code 2042
200 Stovall Street
Alexandria, Virginia 22332- 2300
05/25/90
111-12
Marine Corps
Natural Resource Program Manager
HQMC-LFL
Washington, D.C. 20380-0001
Department of the Air Force
Chief, Environmental Division
Engineering and Services Directorate
HQ, Air Force
Bolling Air Force Base
Washington, D.C. 20332-5000
Chief, Division of Project Compliance and Administration
Federal Energy Regulatory Commission
825 North Capitol Street, N.E., Room 308
Washington, p.c. 20426
Director, Office of Environment and Energy
Room 7154, HUD Building
451 Seventh Street, S.W.
Washington, D.C. 20410-3000
U.S. Forest Service
Wildlife and Fisheries, Room 605
Endangered Species Program Manager
P.O. Box 96090
Washington, D.C. 20013-6090
Chief, Wildlife and Vegetation Division (490)
National Park Service
P.O. Box 37127
Washington, D.C. 20410-3000
Fish and Wildlife Resource Specialist
Office of Trust and Economic Development
Bureau of Indian Affairs
Mail Stop 4513-MIB
Interior Building
Washington, D.C. 20240
05/25/90
111-13
Wildlife Management Biologist
Division of Wildlife and Fisheries (BC 240)
Bureau of Land Management
Mail Stop 903-Premier
Washington, D.C. 20240
Director, Office of Environmental Affairs
Bureau of Reclamation
Mail Stop 7518-MIB
Interior Building
Washington, D.C. 20240
Assistant Director - Program Policy
Office of Surface Mining Reclamation and Enforcement
(LSM)
Mail Stop 228-SIB
1951 Constitution Avenue, N.W.
Washington, D.C. 20245
Federal Highway Administration
Office of Environmental Policy
Environmental Analysis Division
400 Seventh Street, S.W., Room 3240
Washington, D.C. 20590
Directorate for Biological, Behavioral,
and Social Sciences
National Science Foundation
1800 G Street, N.W., Room 215
Washington, D.C. 20550
Director, Office of Nuclear Reactor Regulation
U.S. Nuclear Regulation Commission
Washington, D.C. 20555
05/25/90
APPENDIX IV
FISH AND WILDLIFE SERVICE POLICIES RELATING TO RECOVERY
05/25/90
TABLE OF CONTENTS
Captive Propagation or Cultivation
Habitat Protection/Land Acquisition
Hybrids
Relocation of Listed Species
Reintroduction vs. Introduction of listed species
Termination of Recovery Efforts
Experimental Populations
Listing and Recovery Priority Guidelines
National Environmental Policy Act Requirements
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IV-14
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IV-1
SERVICE POLICIES RELATING TO RECOVERY
The following discussion briefly summarizes Service policies relevant to
recovery activities. References are provided for people wanting more
information, and these reference documents should be available in each
Regional Office.
1. CaDtive DroDagation or cultivation
Captive propagation/cultivation may be a useful tool to facilitate recovery
of a species in the wild, but it is not a substitute for reestablishment
of viable wild populations. The initiation of significant and costly
captive propagation or cultivation programs may be necessary, but should
be considered only after all other techniques to maintain or improve a
species ‘ status in the wild have failed or are determined as likely to
fail. In the case of listed plants, however, seed banking may be relatively
simple and inexpensive and need not be delayed.
Emphasis should be on preservation of natural habitats, population
management, enforcement of protective regulations, and public education
(See Memo from Director to Regional Director, Region 3, Treatment of
cultivated material of listed plant species, 1/14/86).
2. Habitat Drotection/